775 
I2c 
>y 1 



67th Congress,) HOUSE OF EEPEESENTATIVES. ( Eeport 
" I jSession. j \ No. 753. 



READJUSTMENT OF PAY OF THE ARMY, NAVY, MARINE CORPS, COAST 
GUARD, PUBLIC HEALTH SERVICE, AND COAST AND GEODETIC 
SURVEY. 



March 2, 1922. — Referred to the Special Committee on Adjustment of Pay of the 
Army, Navy, and Certain Other Establishments of the Government, and ordered 
to be printed. 



Mr. MoKenzie, from the special committee appointed in accordance 
with the provisions of section 13 of the act approved May 18, 1920, 
submitted the following 

T^T^^-^Z-WZ-l d EEPORT. 

The special committee of the Congress appointed in accordance 
with the following provision of the act entitled "An act to increase 
the ejSiciency of the commissioned and enlisted personnel of the Army, 
Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, and 
Public Health Service," approved May 18, 1920 — 

And provided further, That a special committee, to be composed of five Members of 
the Senate, to be appointed by the Vice President, and five Members of the House of 
Representatives, to be aj)pointed by the Speaker of the House of Representatives, 
shall make an investigation and report recommendations to their respective Houses 
not later than the first Monday in January, 1922, relative to the readjustment of the 
pay and allowances of the commissioned and enlisted personnel of the several services 
herein mentioned [the date for making this report was subsequently extended to the 
fiLrst Monday in March, 1922] — 

submits the following report: 

The committee was organized oh August 22, 1921, and, after secur- 
ing the cooperation of the heads of the executive departments con- 
cerned, proceeded to conduct public hearings relating to the pay 
and allowances of the officers and enlisted men of the several services. 
All the services concerned have been heard, through 67 witnesses. 
In addition a large amount of statistical data and written evidence 
was presented to the committee. The inquiry of the committee has 
been broad in scope and included many details. 

The testimony presented has abundantly established the fact that 
living costs are about 100 per cent greater than in 1908, when the last 
permanent pay schedule was established, and about 75 per cent 
greater than in 1913, before the war. While the act approved May 
18, 1920, gave a certain amount of relief (approximately 20 per cent 

• 



2 EEADJUSTMENI OF PAY. ^ \<^ 

increase), it absorbed only about one-third of this increased cost of 
living in the case of officers, leaving about two-thirds to be borne by 
the individual. Actually, the purchasing power of the present pay is 
much less than that of 1908. 

It should be borne in mind that the relief afforded by the act of May 
18, 1920, is temporary. That act, in most of its provisions, expires by 
limitation on June 30, 1922. Should the Congress fail to legislate on 
the subject, the pay of the great majority of the personnel affected 
will revert automatically to the 1908 schedules, with disastrous results, 
in the opinion of the committee. 

It has been clearly demonstrated to your committee that officers 
and noncommissioned officers and petty officers experience great 
difficulty in maintaining themselves and theu* families under present 
conditions. Furthermore, your committee can not foresee a futui"e 
lowering of living costs to a point where the salaries established in 1908 
would be adequate. 

Your committee has, accordingly, undertaken the preparation of a 
bill to accomplish the following : 

(a) A reduction in total cost below that of the 1923 Budget esti- 
mates, with readjustment of pay in such manner as to give especial 
aid where most recjuired. It should be remembered that the Budget 
estimates are based upon the present temporarj^ pay schedules and 
the present strength of the services. 

(6) Adoption of a schedule which will reasonably compensate offi- 
cers and enlisted men of the services for rank, responsibility, and 
length of service, and at the same time so arranged as to offqr a prom- 
ising career to young men entering in the lowest grades. In view of 
pending legislation to reduce the military and naval establishments, 
it is important that any new pay schedule shall be so drawn as tO' 
provide reasonable remuneration to such personnel as shall remain. 
It becomes doubly essential, if these services are to become numeri- 
cally smaller, that their personnel shall be maintained at a point of 
high efficiency. 

(c) To establish a parity of pay in all of the services concerned. 

{S) To introduce an element of pay which shall, witliin a fixed 
maximum, var}^ automatically with the cost of living. 

{e) To do away with petty allowances and multiplicity of accounts, 
and thus to simplify and cheapen administration. 

The draft of a bill submitted herewith is believed to embody all 
these basic principles. It effects an immediate saving of $13,039,217 
below the 1923 Budget estimates for the six services concerned. It 
effects an ultimate total estimated annual saving of $28,669,997, 
most of which will be accomplished within two or three years by the 
expiration of certain saving clauses which recognize the moral obli- 
gation of the Government not to reduce the pay of any officer now 
in the service below the rate established in 1908, and in the case of 
enlisted men a legal obligation not to reduce their pay during the 
unexpired portion of their current enlistment. With the expiration 
of these saving clauses, the plan here proposed will bring the pay of 
the Army slightly below what it would amount to under the per- 
manent schedules to which it will revert if no further legislation be 
enacted. A comparison of total costs is shown as follows : 

Budget, 1923 1139, 558, 531 

Proposed pay after expiration of saving cla uses... ..^ -^-^- ^^^^^-^.^ 125, 552, TIO' 

ray if no legislation is enacte i - - - {•jaoARY" OF COKQNIii' ' " '■■ ' ' 

RECEIVED 

MAS 1 a 1922 



EEADJUSTMENT OF PAY. 



Each of the six services concerned will show a saving, compared 
to the 1923 Budget, and within each such service a saving will be 
made in pay of officers and of enlisted men. The estimated details 
of this saving, compared to the 1923 Budget estimate, are as follows: 



Services. 



Army 

Navy 

Marine Corps 

Coast Guard 

Public Health Service 
Coast Survey 

Total 



Immediate 
saving. 



Additional 
saving 
within 3 



$3, 569, 122 

4, 780, 637 

1, 557, 695 

b7, l7c( 

48, 988 

45, 602 



13, 039, 217 



$5, 000, 000 



105, 350 



Additional 

saving 

within 4 

years. 



12, 847, 312 
1, 530, 310 



4, 377, 622 



Additional 

sa^'ing in 

indefinite 

period. 



S2, 446, 510 

480, 091 

3, 201, 206 



6, 147, 807 



Total 
ultimate 
saving. 



$14, 035, 632 

8, 108, 040 

6,^83,212 

142, 523 

4S, 998 

45, 602 



28, 669, 997 



The pay schedules proposed in this bill are so worked out as to 
offer a reasonable career to young men of a desirable kind. The 
compensation is commensurate with the duties and responsibilities 
attached to rank, yet provides for increases due to increased expe- 
rience and efficiency apart from rank. It protects the Government 
in the case of abnormally rapid promotion and the individual in the 
case of abnormally slow promotion. It contains an elastic element 
of compensation in the form of allowances (subsistence and rental) 
which increases or decreases, within the maximum limits specified 
in the bill, as the cost of necessities of life increases or decreases, 
thereby protecting alike the interests of the Government and the 
individual. It accepts family life and its greater requirements as 
the normal condition of existence. It recognizes the abnormal con- 
ditions inherent in military and naval service, frequent changes of 
station, and family separations. Finally, it automatically and satis- 
factorily protects the interests of National Guard and Reserve officers 
brought temporarily into the active service of the United States. 

The bill abolishes many inequalities between services whose duties 
are at all times comparable and in time of war are identical. It 
facilitates their financial administration and, for clarity to this end, 
the assistance of the Comptroller General of the United States has 
been secured in its preparation. 

The need for new legislation of this character, the general principles 
embodied in this bill and their application have been approved by 
the Secretaries of the Treasury, War, Navy, and Commerce. The 
details have been worked out by your committee with the assistance 
of their representatives. The principles have the united general sup- 
port of the services concerned. In the opinion of your committee 
the bill submitted embodies the most scientific pay schedule yet 
devised, while being simple, practical, and satisfying the requirements 
of a necessary economy. 

Your committee, having completed its investigation, accordingly 
recommends the passage of the legislation herein proposed. (See 
Appendix A.) 

There is appended to this report a table (Appendix B) depicting 
the pay and allowances of the officers and enlisted men of the Army 
under the provisions of the proposed bill. This table, while confined 
to Army personnel, is, as a matter of fact, applicable to the officers 
and enlisted men of the other services in corresponding rank or 
grade, with very few exceptions. 



4 KEADJUSTMENT OF PAY. 

Appendix A. 

TEXT OP THE PROPOSED BILL AS RECOMMENDED BY THE SPECIAL COMMITTEE TO' 
READJUST THE PAY AND ALLOWANCES OP THE ARMY, NAVY, MARINE CORPS, COAST 
GUARD, COAST AND GEODETIC SURVEY, AND PUBLIC HEALTH SERVICE. 

A BILL To readjust the pay and allowances of the commissioned and enlisted personnel of the Army, 
Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, aiad Public Health Ser^-ice. 

Be it enacted by the Senate and House of Representatives of the United States of America 
in Congress assembled, That, beginning July 1, 1922, for the purpose of computing 
the annual pay of the commissioned officers of the Regular Army and Marine Corps 
below the grade of brigadier general, of the Navy below the grade of rear admiral, 
of the Coast Guard, of the Coast and Geodetic Survey, and of the Public Health 
Service below the grade of surgeon general, pay periods are prescribed, and the base 
pav for each is fixed as follows: 

the first period, $1,500; the second period, $2,000; the third period, $2,400; the 
fourth period, $3,000; the fifth period, $3,500; and the sixth period, $4,000. 

The pay of the sixth period shall be paid to colonels of the Army, captains of the 
Navy, and officers of corresponding grade who have completed twenty-six years' 
service, or whose first appointment in the permanent service was in a grade above that 
corresponding to captain in the Army, or who were appointed to the Regular Army 
under the provisions of the first sentence of section 24, act of June 3, 1916, as amended 
by the act of June 4, 1920; to ofiicers of the Staff Corps of the Navy advanced by selec- 
tion under existing laws to the rank or pay of captain; to lieutenant colonels of the 
Army, commanders of the Navy, and officers of corresponding grade, and lieutenant 
commanders of the line and Engineer Corps of the Coast Guard who have completed 
thirty years' ser^dce; and to the Chief of Chaplains of the Army. 

The pay of the fifth period shall be paid to colonels of the Army, captains of the 
Navj', and officers of corresponding grade who are not entitled to the pay of the sixth 
period; to lieutenant colonels of the Army, commanders of the Navy, and officers of 
corresponding grade who have completed twenty years' service, or whose first ap- 
pointment in the permanent service was in a grade above that corresponding to cap- 
tain in the Army, or who were appointed to the Regular Army under the pro-visiona 
of the first sentence of said section 24; to officers of the Staff Corps of the Na\^ advanced 
by selection under existing laws to the rank or pay of commander; and to majors of 
the Army, lieutenant commanders of the Navy, and officers of corresponding grade 
who have completed twenty-three years' service: Provided, That lieutenant com- 
manders of the Staff Corps of the Navy who were appointed between the dates of March 
4, 1913, and June 7, 1916, in a grade above that of ensign, shall receive the pay of this, 
pay period after completing twenty years' service. 

The pay of the fourth period shall be paid to lieutenant colonels of the Army, 
commanders of the Navy, and officers of corresponding grade who are not entitled 
to the pay of the fifth or sixth period ; to majors of the Army, lieutenant commanders 
of the Navy, and officers of corresponding grade who have completed fouiteen years' 
service, or whose first appointment in the permanent service was in a grade above 
that corresponding to second lieutenant in the Army, or who were appointed to the 
Regular Army under the provisions of the first sentence of said section 24; to captains 
of the Army, lieutenants of the Navy, and officers of corresponding grade who have 
completed seventeen years' service ; and to lieutenants of the Staff Corps of the Navy, 
and lieutenants and lieutenants ("junior grade) of the line and Engineer Corps of the 
Coast Guard whose total commissioned service equals that of lieutenant commanders 
of the line of the Navy drawing the pay of this period. 

The pay of the third period shall be paid to majors of the Army, lieutenant com- 
manders of the Navy, and officers of corresponding grade who are not entitled to the 
pay of the fourth, f&th, or sixth period; to captains of the Army, lieutenants of the 
Navy, and officers of corresponding grade who have completed seven years' ser^dce, 
or whose first appointment in the permanent service was in a grade above that cor- 
responding to second lieutenant in the Army, or whose present rank dates from July 
1, 1920, or earlier; to first lieutenants of the Army, Lieutenants (junior grade) of the 
Navy, and officers of corresponding grade who have completed ten years' service; 
and to lieutenants (junior grade) of the line and Engineer Corps of the Coast Guard 
whose total commissioned service equals that of lieutenants of the line of the Navy 
drawing the pay of this period. 

The pay of the second period shall be paid to captains of the Army, lieutenants of 
the Navy, and officers of corresponding grade who are not entitled to the pay of the 
third or fourth period; to first lieutenants of the Army, lieutenants (junior grade) 



READJUSTMENT OF PAY. 5 

of the Navy, and officers of corresponding grade who have completed three years' 
service, or whose first appointment in the permanent service was in a grade above 
that corresponding to second lieutenant in the Army; and to second lieutenant of' 
the Army, ensigns of the Navy, and officers of corresponding grade who have com- 
pleted five years' service. 

The pay of the first period shall be paid to all other officers whose pay is provided 
for in this section. 

During the existence of a state of war, formally recognized by Congress, officers of 
grades corresponding to those of colonel, lieutenant colonel, major, captain, and 
first lieutenants of the Army, holding either permanent or temporary commissions 
as such, shall receive the pay of the sixth, fifth, fourth, third, and second periods, 
respectively, unless entitled under the foregoing provisions of this section to the pay 
of a higher period. 

Every officer paid under the provisions of this section shall receive an increase of 
5 per centum of the base pay of his period for each three years of service up to thirty 
years: Provided, That the base pay plus pay for length of service of no officer below 
the grade of colonel of the Army, captain of the Navy, or corresponding grade, shall 
exceed $5,750. 

For officers hereafter appointed no service shall be counted for purposes of pay 
except active commissioned service under a Federal appointment and commissioned 
service in the National Guard when called out by order of the President. For officers 
now in the service all service which is now counted in computing longevity pay, 
and service as a contract surgeon serving full time, shall be included in the computa- 
tion. 

The provisions of this act shall apply equally to those persons serving, not as com- 
missioned officers in the Army, or m the other services mentioned in the title of this 
act, but whose pay under existing law is an amount equivalent to that of a commis- 
sioned officer of one of the above grades, those receiving the pay of colonel, lieutenant 
colonel, major, captain, first lieutenant, and second lieutenant, being classified as 
in the sixth, fifth, fourth, third, second, and first periods, respectively. Contract 
surgeons serving full time shall have the pay and allowances for subsistence and 
rental authorized for officers serving in their second pay period. Commissioned 
warrant officers on the active list with creditable records shall, after six years from 
date of commission, receive the pay of the second period, and, after twelve years 
from date of commission, receive the pay of the third period: Provided, That a com- 
missioned warrant officer promoted from the grade of warrant officer shall suffer no 
reduction of pay by reason of such promotion. Army field clerks and field clerks, 
Quartermaster Corps, shall have the allowances for subsistence and rental authorized 
for officers receiving the pay of the first period. 

Sec. 2. That every commissioned officer while on field or sea duty shall receive an 
increase of 5 per cent of his base pay. Field duty shall be defined for the purposes of 
this act as service in mobilization, concentration, instruction, or maneuver camps, 
service in campaign, in simulated campaign or on the march, and service under 
similar conditions. Such field service in each case shall be announced in orders 
published by the President, whose determination shall be conclusive. Sea duty shall 
be sea service as defined in section 1571, Revised Statutes. 

Sec. 3. That when officers of. the National Guard or of the reserve forces of any of the 
services mentioned in the title of this act are authorized by law to receive Federal pay, 
those serving in grades corresponding to those of colonel, lieutenant colonel, major, 
captain, first lieutenant, and second lieutenant of the Army shall receive the pay of 
the sixth, fifth, fourth, third, second, and first periods, respectively. In computing 
the increase of pay for each period of three years' service, such officers shall be credited 
with full time for all periods during which they have received Federal pay, other than 
armory drill pay, as officers of the permanent or reserve forces of any of the services 
mentioned in the title of this act, or of the National Guard, Organized Militia, Naval 
Militia, or National Naval Volunteers; with one-half time for all other periods since 
June 3, 1916, during which they have been recognized as officers of the National Guard; 
with one-third time for all other periods prior to July 1, 1918, during which they have 
held commissions in the Naval Militia or National Naval Volunteers, or, prior to July 
1, 1916, in the Organized Militia; with one-fourth time for all other periods during 
which they have held reserve commissions. 

Sec. 4. That the term "dependent" as used in the succeeding sections of this act 
shall include at. all times and in all places a lawful wife and unmarried children 
under twenty-one years of age. It shall also include the mother of the officer provided 
she is in fact dependent on him for her chief support. 

Sec. 5. That each commissioned officer on the active list or on active duty below 
the grade of brigadier general or its equivalent, in any of the ser\'ices mentioned in 



6 EEADJUSTMEXT OF PAY, 

the title of this act, shall be entitled at all times, in addition to his pay, to a money 
allowance for subsistence, the value of one allowance to be determined by the Presi- 
dent for each fiscal year in accordance -wdth a certificate furnished by the Secretary 
of Labor showing the comparative retail cost of food in the United States for the pre- 
\'ious calendar year as compared with the calendar year 1922. The value of one allow- 
ance is hereby fixed at 60 cents per day for the fiscal year 1923, and this value shall 
be the maximum and shall be used by the President as the standard in fixing the 
same or lower values for subsequent years. To each officer of any of the said services 
receiving the base paj^ of the first period the amount of this allowance shall be equal 
to one subsistence allowance; to each officer recei\'ing the base pay of the second, 
third, or sixth period the amount of this allowance shall be equal to two subsistence 
allowances; and to each officer recei\'ing the base pay of the fourth or fifth period 
the amount of this allowance shall be equal to three subsistence allowances: Provided, 
That an officer with no dependents shall receive one subsistence allowance in lieu of 
the above allowances. 

Sec. 6. That each commissioned officer on the active list or on active duty below 
the grade of brigadier general or its equivalent, in any of the services mentioned in 
the title of this act, if public quarters are not available, shall be entitled at all times, 
in addition to his pay, to a money allowance for rental of quarters, the amount of 
such allowance to be determined by the rate for one room fixed by the President for 
each fiscal year in accordance with a certificate furnished by the Secretary of Labor 
sho\ving the comparative cost of rents in the United States for the preceding calendar 
year as compared with the calendar year 1922. Such rate for one room is hereby 
fixed at $20 per month for the fiscal year 1923, and this rate shall be the maximum 
and shall be used by the President as the standard in fixing the same or lower rates 
for subsequent years. To each officer recei^'ing the base pay of the first period the 
amoun.t of this allowance shall be equal to that for two rooms, to each officer receiving 
the pay of the second period the amount of this allowance shall be equal to that for 
three rooms, to each officer receiving the base pay of the third period the amount of 
this allowance shall be equal to that for four rooms, to each officer receiving the base 
pay of the fourth period the amount of th^s allowance shall be equal to that for five 
rooms, and to each officer recei^■ing the base pay of the fifth or sixth period the amount 
of this allowance shall be equal to that for six rooms. The rental allowance shall 
accrue while the officer is on field or sea duty, temporary duty away from his perma- 
nent station, in hospital, on leave of absence or on aick leave, regardless of any shelter 
that may be furnished him for his personal use, if his dependent or dependents are 
not occupying public quarters during such period. In lieu of the above allowances, 
an officer vdiii no dependents receiving the base pay of the first or second period 
shall receive the allowance for two rooms, that such an officer receiAaug the base pay 
of the third or fourth period shall receive the allowance for three rooms, and that 
such an officer receiving the base pay of the fifth or sixth period shall receive the 
allowance for four rooms, but no rental allowance shall be made to any officer without 
dependents by reason of his employment on field or sea duty. 

Sec. 7. That when the total of base pay. pay for length of service and allowances for 
subsistence and rental of quarters, authorized in this act for any officer below the grade 
of brigadier general or its equivalent, shall exceed S7,200 a year, the amount of the 
allowances to which such officer is entitled shall be reduced by the amount of the 
excess above S7,200: Provided, That this section shall not apply to the captain com- 
mandant of the Coast Guard nor to the Director of the Coast and Geodetic Survey. 

Sec. 8. That commencing July 1. 1922, the annual base pay of a brigadier general 
of the Army and of the Marine Corps, rear admiral (lower half) of the Navy, commo- 
dore of the Navy, and Surgeon General of the Public Health Service shall be $6,500; 
and the annual base pay of a major general of the Army and of the Jifarine Corps, and 
rear admiral (upper half) of the Navy shall be §S,50(). Every such officer shall be 
entitled to the same money allowance for subsistence as is authorized in section 5 of 
this act for officers receiving the pay of the sixth period and to the same money allow- 
ance for rental of quarters as is authorized in section 6 of this act for officers receiving 
the pay of the sixth period: Provided, That when the total of base pay, subsistence, 
and rental allowances exceeds S8,000 for officers serving in the grade of brigadier 
general of the Army and of the Marine Corps, rear admiral (lower half) of the Navy, 
commodore of the Navy, and Surgeon General of the Public Health Service, and 
S9,800 for those serving in the grade of major general of the Army and of the Marine 
Corps, and rear admiral ( upper half) of the Navy, the amount of the allowances to which 
such officer is entitled shall be reduced by the amount of the excess above $8,000 or 
$9,800, respectively. Rear admirals of the Navy serving in higher grades shall be 
entitled, while so serving, to the pay and allowances of a rear admiral (upper half) 
and to a personal money allowance per year as follows: WTien serving in the grade 



EEADJUSTMEISTT OF PAY. 7 

of vice admiral, $500; when serving in the grade of admii-al or as Chief of Naval Opera- 
tions, $2,200. 

Sec. 9. That commencing July 1, 1922, the monthly base pay of warrant officers 
and enlisted men of the Army and Marine Corps shall be as follows: Warrant officers 
of the Army and Marine Corps. $148; warrant officers. Army Mine Planter Service, 
master, $185; first mate. $141; second mate, $109; engineer, $175; assistant engineer, 
$120; enlisted men of the first grade. $126; enlisted men of the second grade, $84; 
enlisted men of the tliird grade, $72; enlisted men of the fourth grade, $54; enlisted 
men of the fifth grade, $42; enlisted men of the sixth grade, $30; enlisted men of the 
seventh grade, $21; and the pay for specialists' ratings shall be as follows: First class, 
$30; second class. $25; third clas2. $20; fourth class. $15; fifth class, $6; sixth class, $3. 
Existing laws authorizing continuous-service pay for each five years of ser\ice are 
hereby repealed, effective June 30, 1922. Commencing July 1, 1922, warrant officers 
of the Army and Marine Corps, including warrant officers of the Army Mine Planter 
Ser\dce and enlisted men of the Army and Marine Corps, shall receive, as a perma- 
nent addition to their pay, an increase of 5 per centum of their base pay for each four 
years of service in any of the services mentioned in the title of this act not to exceed 
25 per centum. On and after July 1, 1922, an enlistment allowance equal to $50, 
multiplied by the number of years served in the enlistment period from which he 
has last been discharged shall be paid to every honorably discharged enhsted man 
of the first three grades who reenlists within a period of thi-ee months from the date 
of his discharge, and an enlistment allowance of $25, multiplied by the number of 
years served in the enlistment period from which he has last been discharged, shall 
he paid to every honorably discharged enlisted man of the other grades who reenlists 
witliin a period of tliree months from the date of his discharge. Nothing contained 
herein shall operate to reduce the pay now being received by any transferred member 
of the Fleet Marine Corps Reserve. On and after July 1, 1922, retired enlisted men 
of the Army and Marine Corps shall have their retLced pay computed as now author- 
ized by law on the basis of pay provided in this act. 

Sec. 10. That on and after July 1, 1922, the monthly base pay of warrant officers 
of the Navy and Coast Guard shall be as follows: During the first six years of service — 
at sea, $153; on shore, $135; during the second six years of service — at sea, $168; on 
shore, $147; after twelve years' service — at sea, $189; on shore, $168. On and after 
July 1, 1922, for purposes of pay, enlisted men of the Navy and Coast Guard shall be 
distributed in seven grades, with monthly base rates of pay as follows: First grade, 
$126; second grade, $84; third grade, $72; fourth grade, $60; fifth grade, $54; sixth 
grade, $36; seventh grade, $21. Chief petty officers under acting appointment shall 
be included in the first grade at a monthly base pay of $99. Nothing contained herein 
shall operate to reduce the pay now being received by any transferred member of the 
Fleet Naval Reserve. In lieu of all permanent additions to pay now authorized for 
enlisted men of the Navy and Coast Guard, they shall hereafter receive, as a per- 
manent addition to their pay, an increase of 10 per centum on the base pay of their 
rating upon completion of the first four years of enlisted service, and an additional 
increase of 5 per centum for each four years' service thereafter, the total not to exceed 
25 per centiun. AH transient additions to pay of enlisted men of the Navy and Coast 
Guard are hereby repealed, except as provided for in section 21 of this act. 

The rates of pay of the insular force of the Navy shall be one-half the rates of pay 
prescribed for enlisted men of the Navy in corresponding ratings. Existing laws 
authorizing a reenlistment gratuity to enlisted men of the Navy and Coast Guard are 
hereby repealed, and hereafter an enlistment allowance equal to $50 multiplied by 
the number of years served in the enlistment period from which he has last been 
discharged, but not to exceed $200, shall be paid to every honorably discharged 
enlisted man of the first three grades who reenlists within a period of three months 
from the date of his discharge; and an enhstment allowance of $25 multiplied by the 
number of years served in the enhstment period from which he has last been dis- 
charged, but not to exceed $100, shall be paid to every honorably discharged enlisted 
man of the other grades who reenlists within a period of three months from the date of 
his discharge. On and after July 1, 1922, retired enlisted men of the Navy and Coast 
Guard shall have their retired pay computed as now authorized by law on the basis 
of pay provided by this act. 

Sec 11. That warrant officers of the Army, including those of the Army Mine 
Planter Service, of the Navy, Marine Corps, and Coast Guard, shall be entitled at all 
times to the same money allowance for subsistence as is authorized in section 5 of this 
act for officers receiving the pay of the first period, and to the same money allowance 
for rental of quarters as is authorized in section 6 of this act for officers receiving the 
pay of the firet period. To each enlisted man not furnished quarters or rations in 
kind there shall be granted, under such regulations as the President may prescribe. 



8 KEADJUSTMENT OF PAY. 

an allowance for quarters and subsistence, the va,lue of which shall depend on the 
conditions under which the duty of the man is being performed, and shall not exceed 
$4 per day. These regulations shall be uniform for all the services mentioned in the 
title of this act. Subsistence for pilots shall be paid in accordance with existing 
regulations, and rations for enlisted men may be commuted as now authorized by law. 

Sec. 12. That hereafter officers of any of the services mentioned in the title of this 
act, when traveling under competent orders without troops, shall receive a mileage 
allowance at the rate of 8 cents per mile, distance to be computed by the shortest 
usually traveled route; but in cases when orders are given for- travel to be performed 
repeatedly between two or more places in the same vicinity, as determined by the 
head of the executive department concerned, he may, in his discretion, direct that 
actual and necessary expenses only be allowed. Actual expenses only shall be paid 
for travel under orders outside the limits of the United States in North America. 
Unless otherwise expressly provided by law, no officer of the services mentioned in the 
title of this act shall be allowed or paid any sum in excess of expenses actually incurred 
for subsistence while traveling on duty away fi'om his designated post of duty, nor any 
sum for such expenses actually incurred in excess of |7 per day. The heads of the 
executive departments concerned are authorized to prescribe per diem rates of allow- 
ance, not exceeding $6, in lieu of subsistence to officers traveling on official business 
and away from their designated posts of duty. 

In lieu of the transportation in kind authorized by section 12 of an act entitled "An 
act to increase the efficiency of the commissioned and enlisted personnel of the Army, 
Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, and Public Health 
Service," approved May 18, 1920, to be finnished by the United States for depend- 
ents, the President may authorize the payment in money of amounts equal to such 
commercial transportation costs when such travel shall have, been completed. De- 
pendent children shall be such as are defined in section 4 of this act. 

Sec. 13. That, commencing July 1, 1922, the annual pay of female nurses of the Army 
and Navy shall be as follows: During the first three years of service, |840; from the 
beginning of the fourth year of service until the completion of the sixth year of service, 
|1,080; from the begiiming of the seventh year of service until the completion of the 
ninth year of service, $1,380; from the beginning of the tenth year of service, |1,560. 
Superintendents of the Nurse Corps shall receive a money allowance at the rate of 
$2,500 a year, assistant superintendents, directors, and assistant directors at the rate 
of $1,500 a year, and chief nurses at the rate of $600 a year, in addition to their pay as 
nurses. Nurses shall be entitled to the same allowance for subsistence as is authorized 
in section 5 of this act for officers receiving the pay of the first period, and to the same 
allowance for rental of quarters as is authorized in section 6 of this act for officers 
receiving the pay of the first period. 

Sec. 14. That officers of the National Guard receiving Federal pay, except for 
armory drill, and reserve officers of any of the services mentioned in the title of this 
act while on active duty shall receive the allowances herein prescribed for officers of 
the regular services in sections 5 and 6 of this act. Hereafter, in addition to the pay 
authorized in section 109, act of June 3, 1916, as amended by the act of June 4, 1920. 
field officers and lieutenants of the National Guard commanding organizations less 
than a brigade, and having administrative functions, shall receive $240 per year for 
the faithful performance of the administrative duties connected therewith ; and warrant 
officers of the National Guard shall receive not more than four- thirtieths of the monthly 
base pay of their grade for satisfactory performance of their appropriate duties, under 
such regulations as the Secretary of War may prescribe. 

On and after July 1, 1922, the armory drill pay for enlisted men of the National 
Guard of the sixth grade shall be $1.15, and for those of the seventh grade shall be |] , 
in lieu of that authorized in section 110, act of June 3, 1916, as amended by the act of 
June 4, 1920. 

Sec 15. That existing laws authorizing increase of pay for foreign service and com- 
mutation of quarters, heat, and light are hereby repealed. 

Sec. 16. That nothing contained in this act shall operate to reduce the pay of any 
officer on the active list below the pay to which he is entitled by reason of his grade 
and length of service on June 30, 1922, not including additional pay authorized by 
the act entitled "An act to increase the efficiency of the commissioned and enlisted 
personnel of the Army, Navy, and Marine Corps, Coast Guard, Coast and Geodetic 
Survey, and Public Health Service," approved May 18, 1920; and nothing contained 
in this act shall operate to reduce the total of the pay and allowances which afty 
enlisted man of the Army, Navy, Marine Corps, or Coast Guard is now receiving 
during his current enlistment and while he holds his present grade or rating. 

The provisions of this section shall apply in like manner to each person not com- 
missioned whose pay is based by law on that of a commissioned officer. 



READJUSTMENT OF PAY. 9 

Sec. 17. That on and after July 1, 1922, retired officers shall have their retired pay, 
or equivalent pay, computed as now authorized by law on the basis of pay provided 
in this act: Provided, That nothing contained in this act shall operate to reduce the 
present pay of officers, warrant officers, and enlisted men now on the retired list or 
officers or warrant officers in an equivalent status of any of the services mentioned in 
the title of this act. Active duty performed after June 30, 1922, by an officer on the 
retired list or its equivalent shall not entitle such officer to promotion. Hereafter 
retired officers of the Army, Navy, and Marine Corps below the grade of brigadier 
general or commodore and retired warrant officers and enlisted men of those services, 
shall, when on active duty, receive full pay and allowances. 

Sec. 18. That under such regulations as the President may prescribe, enlisted 
men of the Army, Navy, Marine Corps, and Coast Guard may receive additional 
compensation not less than |1 or more than $5 per month, for special qualification 
in the use of the arm or arms which they may be required to use. All laws and parts 
of laws authorizing extra pay for qualification in the use of arms or instruments, or 
for holding rated positions, except as otherAAdse specifically provided herein, are 
hereby repealed, to take effect June 30, 1922. 

Sec. 19. That cadets at the Military Academy and cadets and cadet engineers of 
the Coast Guard shall hereafter receive the same pay and allowances -as are now or 
may hereafter be provided by law for midshipmen in the Navy. 

Sec. 20. That all officers, warrant officers, and enlisted men of all branches of the 
Army, Navy, Marine Corps, and Coast Guard, when detailed to duty involving flying, 
shall receive the same increase of their pay and the same allowance for traveling 
expenses as are now authorized for the performance of like duties in the Army. 
Exclusive of the Army Air Service, and student aviators and qualified aircraft pilots 
of the Navy, Marine Corps, and Coast Guard, the number of officers of any of these 
services detailed to duty involving flying shall not at any one time exceed one-half 
of 1 per centum of the total authorized commissioned strength of such service. 
Regulations in execution of the provisions of this section shall be made by the Presi- 
dent and shall be uniform for all the services concerned. 

Sec. 21. That nothing in this act shall operate to change in any way existing laws, 
or regulations made in pursuance of law, governing pay and allowances of the General 
of the Armies, the Philippine Scouts, Marine Band, Naval Academy Band, Indian 
scouts, or flying cadets; nor the allowances in kind for rations, quarters, heat, and light 
for enlisted men; nor allowances in kind for quarters, heat, and light for officers and 
warrant officers; nor allowances for private mounts for officers; nor transportation in 
kind for officers and warrant officers and enlisted men and their dependents; nor 
transportation and packing allowances for baggage or household effects of officers and 
warrant officers and enlisted men; nor additional pay for aides; nor extra pay to enlisted 
men serving as stenographic reporters, or employed as cooks or messmen, or mail 
clerks, or assistant mail clerks, or engaged in submarine diving or service on sub- 
marines; nor money allowances granted to enlisted men on account of awards of 
medals or decorations expressly authorized by Congress. 

Sec. 22. That all laws and parts of laws which are inconsistent herewith or in 
conflict with the provisions hereof are hereby repealed. 



10 



READJUSTMENT OF PAY. 



s 


I? 


S~J 


■< 


^s 


o 


a."^ 








o 


ss 


2; 


so 


■< 


'^ 


I>| 






'^ 




<u 


hJ 


s 


< 


•i^ 


P 




•z 


g 





ffi 



CD 


' •a-' ' • 




2 


2 


o o o a 


05 0> 


o 


0>05 


OTO: 


o 


ojcn 


atOi 


C31C5C33 




O 


5-^ S-^s:^ 
_^ 3 g X o jj 

^ O ft^S S 
P*" ^ o o3 (^ 


CM C<1 


C<1 c5 ?) W (NC^ 


CM 


N?; 


c^?; 


CM 


cm5 


CM CM 


cmcmS 


3 
o 






















A'i • 


00 X 


XX Xt~ Xl~- 


1^ 


t^t~ 


oo 


o 


ox 


ox 


XXX 


'3 


-^ c: v: 


cocc 


co ro CO O CO iO 




lOlO 






LO CO 




CO ^0 CO 


o 


^&3 


ss-^ 


^^ TtIO "*0 


CO 


OCO 


COC£ 


cc 


COt(< 


CO ^ 


Tt<^Tf< 


s 


•a 








































B 




(Mcq 


{N C^ CM CO CM CO 


CO 


coco 


coco 


CO 


CO CM 


CO CM 


CM CM CM 


3 






















^^"Sx 


oo 


O O O O O o 


o 


oo 


oo 


o 


oo 


o o 


ooo 


o 




O CD OCD O O 












CN -M 


CM OlOO 


^ = §•3 


^03 


Oi Oi Oi Oi Oi O 


as 


Ot- 


o>t~. 


o 


oo 


oo 


oo^ 


-as 


-3 








































43 "2 ■■ 


o o 


oo OO OO 


o 


oe 


oo 


o 


oo 


oo 


ooo 




^ ■* 


■^ -* -^ Tji -* ^ 


^ 


if< o 


-;HO 




OCO 


O CO 






-t^ 3 -^^ 


^•^ ■* 




rtH 


^CM 


^ca 




CM m 






rt 


^ c 3 


^r~r 


rr T"^ ""^ 


-^ 


-T-H 


^-^ 


^ 


^"^ 


" 






".: 


oo o 


oo o 


o 


o 


o 


o 


o 


O 


'^ 


o o 






03 c3 

o ^ 


ooo 


oo o 


o 


o 




lO 


o 


o 




o o 






■ LO >n in 


oo o 


t^ 


CM 


CM 


CM 


lO 


lO 




coco 






























re 00 o 


OCO o 


1? 


lO 


lO 


lO 


T(< 


■* 


rfi 


coco 




o 

CO ^ 


coo 


o o o 




K5 


>o 


,^ 


lO 


o 


o 


o 


o o 








ooo 


oo o 




t-- 


r^ 


t^ 


t— 


It: 


in 




XX 






>OOiO 


XX X 




o 


o 


o 


o 




CO 


CO 


^ -}H 
































TO X O 


lO 'O i-O 




lO 


lO 


■o 


■o 


•* 


-:}^ 


-* 


oo CO 
































(N 


» 
























ca • 


ooo 


oo oo 


o 


o 


o 


Q 


o 


o 


Q 


o o 










oo oo 


o 


o 


o 




cz 


o 




coco 






2| 


»o lo tn 


coco O Oi 


o 


03 




Ol 




CM 


CM 


CO CO 






kT'X'o 


10~"0" >o'-*' 


^ 


^ 


■*■ 


TtT 


-*■ 


-IT 


■oT 


co'co' 






























c^ 


«« 






















■^ 


























(M j^; 


ooo 




c o o 


lO 


o 




iO o 


o 


o 


o 


o o 
















cq 


CM 


c^j >o 


ira 


o 




T+H T}1 






Sg 


O uo u- 




-11 TjHr- 


t- 


t^ 




oo 


o 


o 


o 


CM CM 




> 




























co xa: 




■-O uO-H 


■* 


Tt< 


Tt< 


rjl ^ 


Tt< 


-Jl 


-* 


CO CO 




<I> 


w >% 


























o 


(N 


6© 
























?5 ^ 


OOO 




o oo 


o 


o 


o o 






o 


^ 


o 


o o 












O OiO - 


lO 


lO 


lOO 






o 




o 






>> 






CM CMO 


o 


lO 


•oo 






<J> 


C33 


C3J 
































C3 


CO xo 




>0 10-* 


rj< 


Tt< 


^co 




CO 






CO 






i:^ 


e© 


























"3 


00 






























ooo 




O Oi.O 






»o o 




o 


o 


o 


o o 


o o 




o ^ 


ooo 




O Ot^ 






t-iO 






s 




ir> ^ 


oo 




o 


>0 lO.- 




O OcO 




c: 


CO r- 




o 


o 


t- 


o c 


oo 


































L- X 


MX--0 




lO iO-*l 




Tt< 


TtHcO 




co 






CO c^ 


CO .-o 




'O 




























1 




e« 


























J2 • 


ooo 




O OO 






o c 






Q 


o^ 






o o 




"O 


2i 


poo 










oo 








ox 




5 


XOT 












c< 


CM CO 






CO 


CO X 




X 






3 


co'^x'^o 




V ■:1<''1h'~ 




-}< 


•^co 






CO 


C0~C<1 


■~ 




■^ cicM* 




C3 




e« 


























































ft 


-M ,■ 


ooo 




o o o 




o 


lO c 






o 


o c 






oo 




« 




ooo 




O OCM 




C-1 








>o 


lOCO 






53 




c 3 


LO i.O uo 




o oo 




o 


o •* 






■* 


■^ o 




o 


oo 




n 


O: >> 


co'x-as 




-^■^ -iT^'' 




Tf 








CO 


C0"CM 


~ 




of^r 




-J* CO 




«© 




























» -J-: 


ooo 




o oo 




o 


oo 






o 


oc 






oo 






ooo 




o oo 




o 


in o 






o 


o -* 




■^ 


-f tH 






2^ 

'^ to 


O lO u- 




Tf -S< X 




X 


Xc^ 






CO 


coco 






CO CO 




































coxo 




■* -l^ CO 




CO 


CO c^ 






CO 


COCQ 






oa CM 








«© 




























O M 


ooo 




o o.-< 




■o 


i-OO 






o 


o c 






ooo 




2S 


ooc 




o ot^ 




t-- 


t— ir 








oca 






CI C-1 o 




iraiou- 




CM CMO 




o 


COrt 








i-H U- 






O O " 


































cox-^ 




■* tHCO 




CO 


coc 








COC<l 






CM CM CM 






e« 
















































•^"^5 3 


ooc 


oo o o o o 




oc 


oc 




oc 


oc 


ooo 




ooo 


oo oo cc 






oc 




oc 




ooo 






o o o o o u: 




lOC 


lOC 




o-t 


Ot 


-*^o 




co^x'^: 


^"■*"" "^"^co" '^y 




co^cr 


" coV 


- CO 


co'^CJ 


CO^Cs 


- cm'^cTcT 




*^ 


«S 






























'.•^ 








i 


-IT 








i 


■^ 








-d 


















.' * 








.£ 


s> 










s 








5 


u! 












































Cj 


















d>? 








"2 


3 








'a 


^ 








03 


=g 
















3" 








s 


o 








3 


-g 










3 






















c 


i 


=3_ 






s 


i 


C3 






L. 


OJ 

> 
o 


o 
















o 

> 


> 


■>® 




d- 




> 


■>CU 


CM 


^ 




c 
> 
1-- 


^ 


o' a; 














il 


c 

c- 


> 
o 


o 


> 




s 


o 


o 


> 




■>c3 


0>-Sh 














L-l 


^ 




i- 




^ 






















II i 

(D S 03 


53 ^ St^ 


ts 






cc 




C3 


1 


c 
I- 


g7 
















."g^ 


>>2 m^ 


a 


-d 


> 


M "■ 


6 


"2 


a 

> 


1 '^ 5 


.s 












a 




3 " ^^ 


1 


■n 


s 


il 


'3 


3 
-d 


-* 


|x 










"f^ J 


i>>ft=^ 

;j (0 M ftS; 


(2 ^ 


a> 


^ 


>>- 


ft 
a 

4-3 r; 

^ 5 


s 




^ r 








a3 bj 


f* +^ o c 

:2 3 coc<i 

S CI « 0. 


'3 s 


X 


CO ■* 
CM •- 

.. S a 


ti 


X 


t- 








S ""-c 


a> > .ii ft^ 03 S t^ E> 




ft^ d 


M > > 




ft-* a 


■^ > > 








|.2,g 


^gO[x,<! hJ-goc 


S" 


< 1^ 


oOC 


&^ 


< >^ 


Soc 


s^^ii-j 






c 


IS 


f£ 


o 






3 




















5" 
o 











READJUSTMEK"T OF PAY. 



11 





05 01 




03 




cno> I 












(N(M 


(N(M 


IMOl 




00 00 


ooo 


00 a> 












Tt(^ 


■*IN 


TjlC^ 




«1M 


ca ^ 


IM —1 




oo 


oo 
















-*i ^ 


■^ -^ 




oo 


oo 
















(^■* 


■*M< 




o 




^ 
































o 
























l.'J 




CO 






s 




o 
o 




o 














CTi 




















CO 








CM 






„ 




^ 




^ 
























































IM 






„ 




^ 






































TO 




eg 




c4~ 






o 




(-1 














o 










































(.M 




CM 






o 








^ 


































co~ 




(M" 




of 






o 




O 




„ 




























'rt* 






cf 




(M 




of 






r-. 








^ 


































(N 




cvT 




of 








o 


O 
































CM 
























L~l 




<.N 








o 


o 


































m" 


w 




of.-r 




OO 


OO 


oo^ 
















o o 




IMIM 


e<r^ 


Ofrt" 








■rt 




























































c^ 








































m 






































j2 > 


















03 O 


















>>C53 




ai 




OJ 






O 




> 




'? 




O ^ +^ 




a 






■^as 






CJ M 




















^ ^ 








"3 w 


s '^ 












M 


^^^■F! 


^ 


^-fl 


In ^ 


5 


) yea 
and 
app 
nan 
an 3 
tena 


>icj 


"^ 




3^.2 


'o5 










^ 




^ Stj 


t> ^ 


^ 


006^ 


-^s 


O-l 




























M 






1 



o >,l 



QOOO OOOOOOO 



"O O O »0 UO iTD 



O lO lO iC If? o c^ 



uO 1/5 lO lO O 



i>. lO o^-(M r- 



l>4t— CMCOOCO CO-^cOt 



^OOiciDiC^ OcOiOiCTjiTt^C^ uOO-^tJ^TOC^ 






US o © ° ^2 






OOOOOO O O O CD o o o oooooo 

<N00Tt<CCTt<O OOOOOOCM t>J(N(M<N(MC-l 

<— I O CO -^ O CO CD r-- CO --'* 'M' oi lO lO O 'O O '-H 'DO 

lOOOOCOtOCO CDcDLr^iOTticoCN lOiO-^-rticOCN 



O O OO OO 0"0 O O O O lO lO »0 to lO O lO 



Oi CD GO i-H ro 



lO lO lO »0 O O -— I 






i6^ ^c 



S2S2SS 2SS2QS^ OOOOOO 

CO-^C^tJhcMO OOOOOO"— ( I— i^H,— I.— ti— (.-H 

oo^aiqicoco ?i^\2'^oco^ cccotrocwo^cd 



CO G5 !>. iC -^ CO O I 



3'tiCOCOC^ lO rji -rJH CO C^ (M 



O o OP ^ tn 



OOOOOO OOOOOOiO iOiOiO<0»Oi-0 

CO C<) CO t-- 1— I LO >0 O lO O LO O O OOOOOO 

C^GOlOcO'^--' >— 'CD'-HCOI>^r}5f>i c4t^c4l>^o6»0 

coooi>to-^ro coicoTt^cococ^ o-^^^oojcni 



OOOOOC 

oooooc 
cd'^c^i Tj^oio 



IM oo IV "O TjH CO CO <0 lO -it^ CO 



OOOOOOO OOOOOO 

OOOOOOO OOOOOO 

OiOOi-OcOCOt-h .-^cd^COt^'^ 

en in Lt. -4H ro -v^ rsi O rtH Tt^ CO (M CN 






^^^ 






ex) 



K M 



rj O O 
CS M Pi 

-2 §^ 

^ Oo 

cala 3 
S'c'o 

11 ^i 

CD & 2 3 

Ph S OS 



« d _-: 



35S 



VIEWS OF MR. W. B. OLIVER. 

As a member of the joint Senate and House committee, appointed 
pursuant to section 13 of a bill entitled ''An act to increase the 
efficiency of the commissioned and enlisted personnel of the Army^ 
Navy, Marine Corps, Coast Guard, Geodetic Survey, and the Public 
Health Services," approved May 18, 1920, I wish to dissent from, 
the conclusions by the majority members of the" committee, in 
which they submit, as their report, a recommendation urging the 
enactment of a bill introduced in the House by Representative 
McKenzie, of Illinois, and in the Senate by Senator Wadsworth, of 
New York. 

No hearings reduced to writing were had on this bill or on any of 
its provisions, and the House is without recorded information as ta 
any facts on which the majority members base their recommen- 
dation. The proposed bill involves many radical and important 
changes in existing law, is prepared along illogical, unscientific 
lines, and in no way simplifies the pay and compensation allowance 
of the commissioned and enlisted personnel in the several services 
affected. 

The controlling thought in the preparation of the bill seems to 
have been to conserve, protect, and save, as far as possible, the 
approximate present pay and allowance, including the bonus of 
the present commissioned personnel, and to extend increased pay 
to officers on the active and retired list who were denied the bonus^ 
under the temporary act expiring June 30, 1922, such result being- 
accomplished partly at the expense of the enlisted personnel and. 
the lowest commissioned grades. 

The care, thought, and consideration of the officers of the several 
services affected, who really prepared and initiated most of the 
provisions in the bill, as reported to the House and Senate, was. 
primarily guided, I fear, by too strong a compelhng desire to con- 
serve the interest of those now in these services — and which, of neces- 
sity, has resulted in too little thought, care, and consideration 
being given the pay of those who are to fill the vacancies in the 
commissioned and enlisted personnel occurring in future in the 
several services. 

The talk over the table as to the bill's provisions, with the officers, 
who, as heretofore stated, really prepared the bill, disclosed that 
they laid great stress on the necessity of liberal provisos to protect 
the grade and approximate pay status of the present commissioned 
personnel, and although they frankly admitted that many rapid 
promotions to high grades, carrying large increases in pay were 
unjustified and alone resulted from war conditions, yet notmth- 
standing such an admission on their part, the bill as drafted pro- 
poses no correction of present conditions, but seeks congressional 
favor on the promise and assurance that under the proposed bill 

12 



READJUSTMENT OF PAY. 13 

unwarranted promotions, attended with unusual increases in pay 
and allowance, will not occur in future, even under war conditions. 
A bill prepared by Representative McKenzie of the joint committee 
and which was taken by the committee as a basis for discussing the 
provisions of a bill to be recommended to the House contained 
provisions seeking to correct the present condition in the different 
services, resulting from rapid promotions and large increase in pay, 
and the committee understood from the officers appointed to rep- 
resent the different services that a permanent bill could be drafted 
along the lines of the McKenzie bill. Notwithstanding this assur- 
ance, when the final draft of the bill was submitted to the com- 
mittee, lo, and behold, the provisions referred to in the McKenzie bill 
had been entirely eliminated. 

I have purposely omitted a detailed discussion of the provisions 
of the bill, because this can only be done intelligently and helpfully 
when predicated on printed hearings, available for study by the 
membership of the House. 

It has been suggested that the Speaker, who is now authorized 
xmder a resolution recently adopted by the House to appoint a 
special committee, to whom will be referred the pending bill, with 
authority to hold hearings and report the same, may name as 
naembers of such special committee the same Members of the House 
who served on the joint Senate and House committees, and in this 
event, if hearings are had on the bill, the former members of the 
special joint committee, who dissent from the bill as reported and 
recommended for passage, can and will set forth specific grounds 
of objection to the bill, and thus enable Members of the House to 
consider such objections in the light of facts disclosed in the printed 
tearings to be hereafter had on the bill. I feel that only in this 
way can an intelligent conclusion be reached by the House as to 
the merits or demerits of the proposed legislation. 

In conclusion, it may not be out of place to suggest that since 
Oen. Pershing is reported to have reconmiended a very large reduc- 
tion in the commissioned personnel of the Army, it would seem 
unwise for the House to enact a permanent pay bill for the Army 
and other allied services until the House has first fixed the strength 
of the commissioned and enlisted personnel of these services for the 
future. 

If the bill as recommended should be adopted prior to July 1, 1922, 
and a large part of the commissioned personnel, pursuant to Gen. 
Pershing's reported recommendations, are retired after July 1 next 
and during the fiscal year 1923, there would be thus provided a 
permanent base pay for this large number so retired at a much 
higher rate than now authorized under existing law. This fact 
would alone suggest, I submit, the importance of at least delaying 
the enactment of a permanent pay bill until Congress first determines 
a policy fixing the future strength of the services affected. 

Respectfully submitted. 

W. B. Oliver. 



MINORITY VIEWS. 

Under section 13 of a bill entitled ^'An act to increase the efficiency 
of the commissioned and enlisted personnel of the Army, Navy, 
Marine Corp)s, Coast Guard, Coast and Geodetic Survey, and Public 
Health Service," approved May 18, 1920, a joint committee composed 
of Members of the House and Senate was appointed to investigate 
and report on certain matters that were the subject of legislation in 
the aforesaid bill. 

By provisions of the law the committee was required to report not 
later than the first Monday in January, 1922. Subsequently by the 
provisions of Senate joint resolution 142 the time for making this 
report was extended to the first Monday in March, 1922. 

The majority of the members of the committee have prepared 
report in the form of a bill recommended for enactment into law. 
Other members of the committee are submitting this report of views 
and recommendations, and, as the majority report recommends the 
enactment of the bill attached and made a part thereof, the comment 
in this report is made upon and has reference to the proposed bill. 

The testimony presented before the joint committee of the Senate 
and House of Representatives in support of this bill shows that the 
members of these services are facing a condition, due to the excessive 
retail charges for food, clothing, and other articles required to main- 
tain themselves at a proper standard of physical and mental efficiency, 
that must be recognized as an emergency. The witnesses appearing 
before this committee in support of this bill have urged that a perma- 
nent readjustment of their pay and allowances based upon this con- 
dition, and providing a substantial increase over the pay and allow- 
ances authorized by the act of May 13, 1908, must be estabhshed or 
they will be forced to leave these services and seek employment in 
civil life. It would seem, however, that if the present living condi- 
tions are as represented before this committee no action should be 
taken in this bill until the probable duration of the present emergency 
has been more fully determined, and that Congress would not be war- 
ranted in enacting this bill into law, thereby establishing permanently 
a rate of pay based upon a condition of abnormally high retail prices. 

When the act of May 18, 1920, temporarily increasing the pay of the 
officers and men of the service provided for in this bill was enacted 
into law every Member of Congress understood that this increase had 
been requested and granted for the purpose of helping the officers and 
enlisted men of these services over this emergency. It is now con- 
tended by the representatives of these services that this emergency 
still exists, and that if this temporary relief comes to an end on June 
30, 1922, as provided in the act of May 18, 1920, and no further relief 
is given, the officers and men of these services will sufl^er many hard- 
ships which would necessitate their resigning from the service. 

It is not contended in this report that normal living conditions 
should not be taken into consideration in the determination of an 
adequate compensation for services rendered, but it is strongly recom- 
mended that this bill, which provides a permanent readjustment of 
pay based upon abnormally high living costs, be not enacted. This 
14 



READJUSTMENT OF PAY. 15 

country is now passing through a period of abnormal inflation of retail 
prices. The producer is receiving less for his wheat and live stock 
than he received for them prior to 1908, the date when the last perma- 
nent readjustment of the pay of the officers and enlisted men of these 
services was made. It is therefore submitted that the retail price of 
flour and meats will undergo a corresponding reduction in the near 
future. The same applies to shoes, clothing, household effects, fuel, 
rents, and other items, and when this actual reduction takes place 
Congress will be in a position to determine upon an appropriate 
permanent readjustment of the pay and allowances of the officers and 
enlisted men of these services. 

The plan for permanently readjusting the pay of these services as 
outlined in this bill is not in accord with the policy of this administra- 
tion and this Congress to maintain a rigid economy in all things. The 
taxpayers of this country would not willingly accept the extra burden 
created through a permanent readjustment of pay for the several 
hundreds of thousands of officers, enlisted men, and other individuals 
in these services, based upon a living condition that is admitted by 
those requesting this readjustment as abnormally high. Neither the 
members of this committee, the Members of Congress, nor the officers 
and enlisted men of these services are able to determine what the 
conditions will be in respect to the price of food, clothing, and shelter 
six months or a year hence, but it is a foregone conclusion that retail 
prices will be materially lower. This belief is based upon the knowl- 
edge that in many instances the cost of raw material is lower than it 
was in 1908, and that retail prices must through the force of circum- 
stances reduce until a condition relative to the cost of raw material 
is reached. It is, therefore, recommended that in the face of these 
conditions it would not be prudent to attempt a permanent readjust- 
ment of the pay and allowances of the officers, enlisted men, and 
others of these services, as provided for in this bill, until relation 
between the cost of the raw material and the retail price of the finished 
product has reached a healthy stability. 

If, as contended by the witnesses appearing before this committee, 
this country is now passing through a period of abnormal retail price 
inflation, it would appear that the proper remedy for this situation is 
not to establish a permanent readjustment of pay based upon these 
conditions, but perhaps to consider whether or not it would be 
advisable to continue the temporary relief granted by the act of May 
18, 1920, for another year. There is, however, a further phase of this 
situation relative to this bill to which attention is invited. This 
country is now, and for some time past has been, passing through a 
period of retrenchment and readjustment. The cost of an unhealthy 
economic condition brought on by the war is falling heavily upon 
every one, and each must bear his share of the load. Under these 
conditions it would seem that the proper thing to do in the interest 
of retrenchment would be to have the members of these services 
revert substantially to the pay of May 13, 1908, as soon as this can 
be accomplished under existing laws. 

The laboring man, who was more generously rewarded during the 
period of increased wages than the professional man, now finds his 
rate of pay reduced to practically what it was during the prewar 
period. This also applies to the trained mechanic and artisan, who, 
in many instances, now finds himself out of a job and with no means 



16 READJUSTMENT OF PAY. 

of supporting his family. Likewise many of the professional classes 
who are dependent upon salaries, such as professors of colleges and 
universities, chemists, accountants, the great body of Government 
officials, local. State, and Federal, and others who did not receive any 
temporary relief during these high prices as did the officers, enlisted 
men, and others of the Army, Navy, Marine Corps, and other serv- 
ices, through the act of May 18, 1920, now find themselves among the 
unemployed. 

The pay and allowances of officers, enlisted men, and others in 
these services to-day can not be compared with the pay received by 
railroad conductors, engineers, firemen, carpenters, hod carriers, 
and bricklayers in 1919. The cost and wage tables of 1918 and 1919, 
even 1920 and 1921, have been showm to be of little value in this case. 
Attention is invited to the fact that thousands of navy yard em- 
ployees who come under the immediate jurisdiction of one of the de- 
partments recommending this bill were recently thrown out of 
employment. It would appear to be obviously unjust to recom- 
mend the enactment of the provisions of this bill for the benefit of 
the services enumerated therein when men in our navy yards, ev[ually 
skilled and equally important to the defense and safety of our country, 
" and others of equal importance in other occupations, have been dis- 
charged to effect further economies. It is suggested that a readjust- 
ment of the pay and allowances of the officers, enlisted men, and 
others of these services upward, as provided in this bill, or an exten- 
sion of the provisions of the act of May 18, 1920, in the face of these 
conditions would result in an unwise and indefensible discrimination 
among the employees of this Government. The plan designed to lead 
to a complete restoration of normal conditions must treat all as 
nearly alike as it is possible to do. The bill under consideration is 
designed for the benefit of a few whom it saves from the burdens of 
retrenchment which are borne by others of equal worth. 

From an extended examination of the facts adduced before this 
committee it is perfectly clear that the object sought by the repre- 
sentatives of these services is to obtain a permanent readjustment of 
their pay and allowances based upon conditions which are recognized 
by them as abnormal. This bill as recommended provides for a 
permanent readjustment of pay and allowances that preserve not 
only the rate of pay provided by the act of May 13, 1908, but also the 
greater part of the temporary increase that was given them by the 
act of May 18, 1920. It appears, therefore, that if this bill is enacted 
into law the object sought will have been attained. 

The friends of this bill appearing before this committee have pointed 
to the large number of resignations from the various branches of the 
military service of the United States occurring during the year of 
1919 and prior to the passage of the act of May 18, 1920, and it has 
been urged upon this committee that a failure to permanently readjust 
the pay and allowances of these services upward as provided in this 
bill would result in many more resignations from the service. The 
fallacy in this argument lies in the fact that in 1919 conditions in civil 
life were superficially very prosperous, as a result of which many 
flattering inducements were offered to military men to resign from 
the service and enter civil life. The testimony adduced before this 
committee shows that these conditions have passed and that many of 
the officers who resigned from these services at that time have sub- 



READJUSTMENT OF PAY. 



17 



sequently sought to be reinstated. In the face of the present con- 
ditions it would appear that those who have positions or commissions 
which are reasonably secure, and which carry with them a wage or 
salary, insuring a livelihood and retired pay, are very fortunate, and a 
large number of resignations from the military service is not to be 
anticipated at this time even though the provisions of this bill are not 
enacted into law. 

While a consistent effort has been made before this committee to 
show that a return to the pay and allowances established by the act 
of May 13, 1908, would result in .wholesale disaster, it appears from 
all the facts gathered by the committee that a return to the pay and 
allowances provided by the act of May 18, 1920, will not reduce a 
single man in the service to a condition that will materially interfere 
with his effectiveness. It is therefore recommended that no further 
action be taken on this bill and that upon the expiration of the act 
of May 18, 1920, which terminates on June 30, 1922, the personnel 
of these services be permitted to revert to the pay and allowances 
prescribed by the act of May 13, 1908. 

An attempt has been made before this committee to point out that 
the provisions of this bill, if enacted into law, will result in a sub- 
stantial saving to the Government, relying for that purpose upon the 
Budget estimates submitted for these services for the fiscal year end- 
ing June 30, 1923. The provision for pay and allowances of these 
services presented in the Budget estimates for 1923 appears to have 
been based upon the act of May 18, 1920, which act expires on June 
30 of this year. Attention is invited, however, to the fact that the 
saving indicated, as accomplished by the provisions of this bill, has 
been based upon an artificial total which has no authority in law, and 
that when checked against the legal rate of pay provided by the act 
of May 13, 1908, which will be in force after June 30, 1922, unless 
sooner repealed, the provisions of this bill show an increased cost of 
many millions. 

The following table shows the actual situation based upon the 
estimated cost of the several services under the provisions of this bill 
relative to the cost under the acts of May 13, 1908, May 18, 1920, and 
the Budget submitted by the Director General of the Bureau of 
the Budget: 

ARMY. 



Budget, 
1923. 



Proposed 
pay. 



Correspond- 
ing amounts 
if no legisla- 
tion is en- 
acted. 



Base and service pay of officers 

Temporary increase, act May 18, 1920 

Foreign service pay 

Saving clause, officers, active list 

Commutation of quarters, heat and light . 

Subsistence allowance 

Pay of retired officers 

Saving clause, retired officers 

Pay and allowances, warrant officers 

Pay and allowances of nurses 

Pay of enlisted men 

Saving clause, enhsted men 

Temporary increase, act of May 18, 1920.. . 



Total. 



S39, 906, 190 

9, 032, 820 

380, 644 



838, 816, 705 



4,925,050 
'5,"i32,"655 



2, 479, 864 

1, 092, 455 

73,015,586 



004,645 
007, 280 
680, 422 
107,350 
461, 865 
153, 120 
257, 985 
529, 857 
000,000 



3,623,705 



133, 019, 229 



$39,906,190 



4, 925, 050 
'5,'i32,'655 



2, 455, 846 

882, 535 

72, 054, 276 



125, 736, 596 



H. Kept. 753, 67-2- 



18 



EEADJUSTMEIsTT OF PAY. 



Estimated excess of expenditure under this bill over no legislation, 

$7,282,633. 



NAVY. 



Budget, 1923. 



Proposed 
pay. 



Correspond- 
ins: amounts 
if no legis- 
lation is 
enacted. 



Rates of pay 
based on 1908 
scale, consid- 
ering all pro- 
visions in act 
of May, 1920, 
inoperative. 



Base and service pay of officers 

Sa\ing clause, officers' active list 

Commutation of quarters, heat, and light. 

Subsistence allowances 

Paj' of retired officers 

Saving clause, retired officers 

Rations, warrant officers 

Pay and allowances of nurses 

Pay of enlisted men 

Sa\nng clause, enlisted men 

Pay of apprentice seamen 

Saving clause, apprentice seamen 

Pa5' of retirea enlisted men 

Honorable discharge gratuity 



Total. 



$30,397,236 

'"'5,'354,'472' 



3,114,840 



§24,745,635 
1,080,455 
5,342,662 
3,283,423 
3, 470, 075 
28, 438 



S25, 508, 196 
'"2," 208,' 384' 



$25, 508, 196 
"'2,"268,"384 



3,114,840 



184, 690 

771,346 

87,203,496 



774, 955 
83, 189, 757 



2,376,000 



675,566 
7,638,400 



1, 512, 000 
559,728 
944,689 

4,965,900 



184, 690 

681, 830 

75,207,128 

2,347,508 

1,985,517 



184,690 

681,830 

52,890,426 



1,267,200 



675, 566 
4,393,619 



137, 716, 046 



132,245,225 



113,959,770 



675, .566 
4,393,619 

90,924,751 



Estimated excess of expenditure for Navy under this bill over no 
legislation, 118,285,455. 

Estimated excess of expenditure under this bill over no legis- 
lation for Army and Navy only, $25,568,088. 

Estimates in the Budget for 1923, for Army and Navy only, in 
excess of estimated expenditures if no legislation is enacted, $37,- 
568,031. 

Summary of temporary increases for c(5mmissioned personnel, 
included, without support of law, in the estimates for the fiscal 
year 1923, for the several services mentioned:- 

Navy 17, 914, 360 

Armv 9, 032. 820 

United States Public Health Service 891, 480 

Coast Guard 260, 823 

Marine Corps 673. 620 

Coast and Geodetic Survey 90, 750 

Total 18, 863, 853 

While it has been strongly urged before this committee that the 
pay and allowances of the officers and enlisted personnel of the 
Army, Navy, and Marine Corps have not undergone a general read- 
justment since Aiay 13, 1908, your attention is invited to the fact 
that the national defense act of June 3, 1916, reorganizing the serv- 
ices of the Army, Navy, and Marine Corps resulted in the promotion 
of practically every officer in these services one or more grades, 
which was tantamount to a substantial increase in pay for the 
officers promoted. This increase was further augmented in the case 
of the majority of these officers by subsequent acts giving them 
temporary promotions, which the Army reorganization act together 
with the Navy act, each approved on June 4, 1920, enabled a large 
percentage of these officers to convert into permanent promotions, 
thereby obtaining further substantial increases in pay. These pro- 



EEADJUSTMEl^T OF PAY. 19 

motions were in fact substantial increases in pay. For example, a 
first lieutenant in the Army with 10 years' service, promoted in 1916 
to the grade of captain with 10 years' service, received an actual 
increase of pay and allowances amounting to $610.72 per year, 
while a similar promotion from the grade of captain to the grade 
of major gave him an increase of pay and allowances amounting ot 
$1,034.76. The same promotion on July 1, 1920, gave the officer 
promoted from first lieutenant to captain an increase in pay and 
allowances amounting to $783, while a similar promotion jfrom the 
grade of captain to the grade of major gave him an increase of pay 
and allowances amounting to $1,019.76. A promotion of two 
grades, i. e., from first lieutenant ■ to major would give this officer 
an increase in pay in 1916 amounting to $1,645.48, and a similar 
promotion July 1, 1920, would give him an increase in pay amount- 
ing to $1,802.76. 

The increase in the pay and allowances of an officer of the Marine 
Corps promoted under similar conditions was identical with the 
increases indicated for the Army officer, while the increase under like 
conditions in the Navy was a little larger or smaller depending upon 
whether the officer concerned was serving at sea or on shore, respec- 
tively. So it is observed that the representations made before this 
committee to the effect that there has not been any general read- 
justment of pay and allowances for the officers personnel since May 
13, 1908, although technically correct, must be discounted in the 
face of the rapid promotions brought about b}" the reorganization 
of these services since 1916. 

In the case of the personnel of the Coast Guard, Coast and Geodetic 
Survey, and Public Health Service attention is invited to the fact 
that recent laws giving to these services the pay and allowances of 
the personnel of the x4.rmy. Navy, and Marine Corps provided a 
substantial increase of pay in every case, and in many cases the 
increase was as much as 100 per cent. Looking at the situation 
squarely, there does not seem to be any good and sufficient reason 
why these nonmilitary services should be included in a readjustment 
of the pay and allowa,nces of the strictly military services any more 
than the entire personnel of the Government civil service should be 
included therein. The personnel of the Coast Guard, Coast and 
Geodetic Survey, and Public Health Service may serve under the 
direction of the Secretary of War or the Secretary of the Navy during 
the existence of war or a national emergency declared by the Presi- 
dent to exist. But the civilian personnel in the War and Navy 
Departments, at the navy 3''ards, and at the Army field headquarters 
also serve under the direction of the Secretary of War or the Secretary 
of the Navy, and it is submitted that these members of the personnel 
of the civil service are as much entitled to the benefits of this increased 
pay and allowances as are the members of the personnel of these 
other nonmilitary services. It is, therefore, recommended that the 
personnel of the Coast Guard, Coast and Geodetic Survey, and the 
Public Health Service be not included at this time or at any future 
time in a bill for the readjustment of the pay and allowances of the 
officers and enlisted personnel of the Army, Navy, and Marine Corps, 
and that the pay and allowances of these nonmilitary services should 
not only be disassociated from the pay and allowances of the xlrmy, 



20 EEADJUSTMENT OF PAY. 

Navy, and Marine Corps but also from each other for the reason 
that the nature and quality of the services rendered are so dissimilar 
that they do not furnish an adequate basis of comparison for the 
purpose of determining a single rate of pay and allowances which 
would be adequate for one without being excessive or inadequate for 
the other two. 

Turning to the consideration of the fundamental ideas running 
through this bill, it would seem that they contemplate a pay based 
upon certain pay periods, length of service, and upon the proposition 
of dependents. Very little if anything is said about the fundamental 
principle upon which all compensation should be based in order to 
insure a healthy employment relationship, namely adequate compen- 
sation for the character of the services rendered. All other ideas are 
by their very nature secondary and subservient to this principle, and 
any plan, such as that contained in this bill, giving length of service, 
number of dependents, or any like ideas primary importance over the 
principle of adequate pay based upon the character of the services 
rendered, is fundamentally wrong. The idea of pay based directly upon 
length of service and directly or indirectly upon the number of de- 
pendents is contrary to any principle of compensation recognized in 
either governmental or private employment. If these ideas are 
applicable to the pay and allowances of the officers and enlisted per- 
sonnel of the Army, Navy, Marine Corps, and the other services 
included in this bill, they apply with equal force to all other branches 
of the Government service, and if these ideas are formally injected 
into our system of laws regulating the pay and allowances of one 
service there could not be any justice in withholding their benefits 
from the personnel of all other branches of public service. The theory 
of pay based in any way upon length of service or number of depend- 
ents, as contained in this bill, is obviously a dangerous experiment 
which would undoubtedly lead to indefensible inroads upon the Public 
Treasury. 

The principle of pay for services rendered according to the circum- 
stances immediately surrounding the employment and the position 
occupied in any organization represents the only wise plan of com- 
pensation that is known to-day. Many Utopian plans have been ad- 
vanced from time to time to get something from the Government for 
nothing, but none of them have ever been acceptable. As provided 
for in this bill, pay based upon length of service results in an increased 
compensation regardless of whether or not the recipient has in fact 
increased in efficiency, while pay based upon the idea of dependents 
is merely an old scheme for getting something for nothing, and should 
not be looked upon with favor. 

It is agreed to-day that every man who serves for pay should be 
paid a living wage for his services, and in the greater number of cases 
it is so arranged that the duties to be performed call for a living wage 
but in any event where a man receives more than a living wage the 
wage received should be based solely upon the value of the services 
rendered and in no case are the number of his dependents to be taken 
into consideration, as provided for in this bill, for as already pointed 
out, to do so would be to pay the employee for something that he does 
not earn. For him to demand pay based upon dependents, and in 



. READJUSTMENT OF PAY. 21 

addition to services rendered, would be to demand something for 
nothing, something that he i's not entitled to receive. 

From the manner in which the representatives of these various 
services testifying l)efore this committee stressed the point of pay 
based on length of service it might be deduced that they probably 
doubted their ability to earn a promotion to a higher grade or rank 
based upon merit, which promotion in every case under the general 
principles now authorized by law carries with it an increase in pay. 
The manner in which they have stressed the point of pay based upon 
dependen+s would lead one to understand that they were I'eceiving all 
the compensation that the character of their services warranted, 
otherwise they would make their request for permanent readjustment of 
pay squarely upon that ground and not permit themselves to be forced 
into the absurd position of openly seeking to obtain additional com- 
pensation on the basis of dependents for which they obviously do not 
propose to give even a semblance of a return ; in other words, in the 
position of contending that they ought to receive something without 
giving any return by way of service. The proposition of a living wage 
is based upon well-known principles, but the proposition of pay based 
upon dependents is merely seeking a gratuity and it should have no 
place in any legislation establishing a system of pay for the personnel 
of either the military or nonmilitary services under the Federal 
Government. 

It has been repeatedly urged before this committee that efficiency 
dej)ends upon contentment and that contentment does not neces- 
sarily come from an adequate pay for services faithfully rendered, 
but that contentment depends primarily upon whether the employees' 
dependents are adequately provided for by the Government. It is 
admitted that the proper provision for one's dependents is a condition 
sought by every right-minded man, but heretofore it has always 
been understood that the individual was under an obligation to 
provide for his dependents out of the compensation received for 
services rendered and not that the Government was under an obliga- 
tion to provide a pay commensurate with the number of an officer's 
dependents. Every man has his problems to meet and he must 
elect to meet them in his own way. The Government can not be 
expected to meet them for him, although many of the witnesses 
appearing before this committee insisted that the Government 
somehow or other is under an obligation to do so, and this in the 
face of the fact that no other group of Government employees have 
anything like the insurance that is provided in the way of retired 
pay for the commissioned personnel of these services. 

When the Government, as any other employer, has provided an 
adequate pay for the character of the services rendered it has done 
all that it should do in fairness and justice to the individuals who 
are required to pay the taxes and have no one upon whom they 
can shift the burden of providing for the support of their aged 
mothers, crippled children, and invalid wives. The Government 
has no right to ask the taxpayer to supply funds for the support 
of the . aged mother of an Army officer, as provided for in this bill, 
when the Government does not have any means whereby it can 
provide support for the taxpayer's aged mother. If the average 
member of the commissioned or enlisted personnel of these services 



22 eeadjustmejs^t of pay. . 

insists that the Government must bear all of his burdens, support 
his dependents, and furnish him with io6d, shelter, and heat and light, 
as provided in this bill, in addition to a pay based upon the service 
rendered, then we can logically expect that men employed in other 
branches of the Government service will demand pay based upon 
the principles contained in this bill. It is a very simple matter for 
an individual to fret himself into a mental condition of riotous 
discontent, and if the Government is going to adopt a policy of 
paying each member of these services a compensation based upon 
a principle of no cost is too great if only contentment can be secured, 
as would logically follow from the provisions of this bill, the Govern- 
ment must soon convert itself into a charitable institution devoting 
its time and money to caring for the dependents not only of the 
commissioned and enlisted personnel of these services but of every 
other service under the Government. 

The principle of granting adequate assistance to an individual 
injured in the defense of his country is well understood and has 
everything to commend it, but there is no similarity between that 
principle and the idea of additional conipensation based upon de- 
pendents as provided for in this bill. Nor is there any similarity 
between pay based upon dependents and the allotments or a separa- 
tion allowance provided during the World War for enlisted men who 
were compelled by the Government to give up their work regardless 
of whether or not their dependents had any other means of support. 
There are many examples of its abuse such as would undoubtedly 
take place if this bill was enacted into law, but it was an emergency 
and they had to walk out regardless of consequences. The present 
members of these services did not come in under any such circum- 
stances, and the comparison is not justified. The exemption granted 
under the income tax law has been cited in support of this proposi- 
tion relative to dependents. Here again the circumstances are 
totally dissimilar. In the case of the income tax the Government 
has hesitated to take away from a man or woman a part of what 
he or she has earned when what they have earned does not exceed 
a certain small amount; while in the case of additional compensation 
based upon dependents the Government is asked to give the officer 
something without regard to service rendered; to pay him money 
that he has not earned, for if he has earned it in any way it would 
be compensation based upon services rendered and not compensation 
based upon dependents. The principle being wrong, the fact that 
its application is being sought in a slightly restricted sense in this 
bill is immaterial. It savors of paternalism to an extent which 
should not be enacted into law. 

The representatives of these services having failed to urge before 
this committee a readjustment of pay and allowances based upon the 
character of the services rendered and the reasons therefor, and 
having relied almost exclusively upon the ideas of an increased 
compensation based upon dependents, subsistence (food), commuta- 
tion of quarters (shelter), and length of service, none of which should 
in fact receive more than a superficial consideration in connection 
with legislation of this character, it must be presumed that the 
character of the services now rendered does not justify a readjustment 



READJUSTMENT OF PAY. 23 

of pay over the pay provided by the act of May 13, 1908; for if the 
character of the services rendered did warrant a readjustment of 
pay and allowances at this time, regardless of the emergency which 
has been urged before this committee, the representatives of these 
services would not have so far failed in the execution of the trust 
imposed upon them by the other members of these services as to have 
neglected to bring forward with all the sincerity and force at their 
command this single and all-important fact which in the very natuie 
of things constitutes the only legitimate reason for asking for a 
permanent readjustment of the pay and allowances of the com- 
missioned and enlisted personnel of these services now or at any 
future time. 

An examination of the provisions of this bill shows that it has been 
drawn in the manner that leaves very much to be desired in the way of 
simplicity, as well as in the way of some of more important principles 
recognized as fundamental in drafting legislation of this character. 
Words are given new and heretofore legally unheard of uses; simple 
propositions are rendered unnecessarily complex; and the same idea 
has been so expressed in different sections that it can not possibly 
be interpreted to mean what it was intended to mean in each case. 
In the first place all idea of the importance of the office to which an 
officer is appointed or promoted, as the case may be, has been either 
lost sight of or its normal functions so obscured as to render it value- 
less. Attention is invited to the fact that under the Constitution and 
laws of the United States each commissioned officer in the military 
forces thereof holds his commission therein by virtue of an appoint- 
ment by the President, by and with the advice and consent of the 
Senate, and that by virtue of his appointment to this office he has 
certain duties to perform, the character and nature of which are 
based upon the office which he holds. If the principle still holds 
good, and it has never before been seriously challenged, that a just 
compensation is determined in every case by the character of the 
services performed and that the nature of the services to be per- 
formed are determined by the office to which he has been appointed 
or promoted, there is a direct connection between the office held and 
the pay received. For example, it is provided in the first section of 
this bill that these services shall be divided into six pay periods. 
What the term "pay periods" means is not clear, but there can be no 
mistake about it not being an office for an officer who is commissioned 
in the office of major may find that his pay is based upon any one of 
three pay periods, depending, in some instances, upon the length of 
time he has served from the date of his first commission in that 
service, while in other instances it depends upon when or how he 
happened to be appointed to the service or advanced to that office. 
It appears that if he did not come in in the orthodox manner he must 
be penalized. In other words, this bill provides three or more rates 
of pay for the office and grade of major, although every man in that 
grade is presumed, and must in the very nature of things be presumed, 
to perform practically the same quantity and quality of work regard- 
less of the manner in which he happened to receive a commission in 
that grade. 



24 READJUSTMENT OF PAY. 

Every officer in the grade of major or in any other grade should be 
qualified to serve in that grade or he should not have been commissioned 
therein, and if he is qualified to sferve in that grade it follows as a 
matter of course that he is entitled to just as much compensation for 
the services rendered as any other officers serving in any grade re- 
gardless of the conditions under which they were commissioned 
therein. There should be but one standard of efficiency required for 
a grade or office in the military service, and any officer who is not up 
to that standard should not be commissioned in that grade. If, on 
the other hand, he is in fact qualified for a commission in that grade 
it is submitted that he is entitled to the pay which constitutes a just 
compensation for services rendered in that grade regardless of whether 
he entered the service as a graduate of West Point, came up from the 
enlisted ranks, or was appointed from civil life. If a pay bill were 
constructed along these lines it would be so simple that it would not 
require a long line of judicial decisions interpreting it, and any officer 
included within its provisions would be able to look at it and tell the 
exact amount of pay that he was entitled to receive for the services 
rendered. 

It has been urged before this committee that the pay of each grade, 
except that of second lieutenant and colonel, must be divided into 
three rates (pay periods) to meet the contingency of too rapid pro- 
motion, too slow promotion, and normal promotion. In other 
words, it is contended that some officers are being promoted to a 
higher grade before they are qualified to perform the duties of that 
grade, while in other instances the distinction appears to be made 
without regard to his ability but because he has been appointed from 
civil life. In any event a scheme has been provided whereby an 
officer will continue to receive the pay of the lower grade although 
he is in fact serving in the higher grade. To provide in a bill establish- 
ing a permanent readjustment of pay and allowances that an officer 
shall continue to receive the pay of the grade from which promoted 
after he has demonstrated his fitness for promotion and has been 
promoted accordingly, despite the fact that he is no longer perform- 
ing the duties of the lower grade, but has been found qualified to per- 
form the duties of the next higher grade, which duties he is in fact 
performing, is neither fair nor logical. 

No better example of the extent to which the provisions of this 
first section have been complicated can be given than the following 
table, which represents some of the many different gradations of pay 
provided for in section 1 of this bill : 



READJUSTMENT OF PAY. 
Table 2. 



25 



Pay period. 



Grade and title. 



Base pay. 



Sixth pay period. . 

Do 

Do 

Do 

Do 

Fifth pay period.. 

Do 

Do 

Do 

Do 

Do 

Do 



Fourth pay period. 

Do 

Do 

Do 

Do 

Do 



Do. 



Third pay period. 

Do 

Do 

Do 

Do 

Do 



Second pay period. 

Do 

Do 

Do 

First pay period. . . . 

Do 

Do 



1. Colonel, over 26 years' service 

2. Colonel, iirst appointment above captain 

3. Colonel, appointed under sec. 24, act June 4, 1920 

4. Captain, staff, Navy, by selection 

5. Lieutenant colonel," over 30 years' service 

6. Colonel, less than 26 years' service 

7. Lieutenant colonel, over 20 and less than 30 years' service 

8. Lieutenant colonel, first appointment above captain 

9. Lieutenant colonel, appointed under sec. 24, act June 4, 1920 

10. Commander, staff. Navy, by selection 

11. Major, over 23 years' service 

12. Lieutenant commander, staff". Navy, first appointment above en- 

sign. Mar. 4, 1913, June 7, 1916, after 20 years' service. 

13. Lieutenant colonel, less than 20 years' service 

14. Major, over 14 but less than 23 years' service 

15. Major, first appointment above second lieutenant 

16. Major, appointed under sec. 24, act June 4, 1920 

17. Captain, over 17 years' service 

18. Lieutenant, staff. Navy, service equal to lieutenant commander, 

line of Navy in this period. 

19. Lieutenant (senior grade or junior grade) of Coast Guard Service, 

equal to Ueutenant commander, Une of Navy, in this period. 

20. Major^ less than 14 years' service \ 

21 . Captain, over 7 and less than 17 years' service 

22. Captain, first appointment above second Ueutenant 

23. Captain, present rank July 1, 1920, or prior 

24. First lieutenant, over 10 but less than 17 years' service 

25. Lieutenant (junior grade). Coast Guard Service, equal to Ueu- 

tenant, Une of Navy," in this period. 

26. Captain, less than 7 years' service 

27. First Ueutenant, over 3 years' service 

28. First lieutenant, first appointment above second Ueutenant 

29. Second lieutenant, over 5 years' service 

30. First Ueutenant, less than 3 years' service 

31. Second Ueutenant, less than 5 years' service 

32. The pay of this period appUes to all other officers below the grade 

of brigadier general whose pay is provided for in this section. 



$4,000 
4,000 
4,000 
4,000 
4,000 
3,500 
3,500 
3, 500 
3,500 
3,500 
3,500 
3,500 

3,000 
3,000 
3,000 
3,000 
3,000 
3,000 

3,000 

2,400 
2,400 
2,400 
2,400 
2,400 
2,400 

2,000 
2,000 
2,000 
2,000 
1,500 
1,500 
1,500 



It is pointed out by way of explaining the above table that para- 
graph 2 of this section creates six pay periods which have heretofore 
been unknown to the laws providing rates of pay for these services. 
They apparently bear no relation to the grades or offices to which 
officers are appointed or promoted, and which have been heretofore 
considered as an appropriate measure of the pay value of the services 
rendered. It would appear from a careful analysis that they merely 
constitute an artificial arrangement, making that which was already 
very complex more complex. The base pay of these periods is fixed 
as follows: The first period, $1,500; the second period, $2,000; the 
third period, $2,400; the fourth period, $3,000; the fifth period, 
$3,500; and the sixth period, $4,000. These periods were undoubt- 
edly intended to correspond in a way to the grades of second lieu- 
tenant, first lieutenant, captain, major, lieutenant colonel, and 
colonel, respectively, but as a matter of fact they do not. 

It will be noted from an examination of the pay periods as set 
forth in the above table that in the sixth pay period a lieutenant 
cftonel with 30 years' service will receive the same base pay as a colonel 
with 26 years' service and decidedly more pay than a colonel with 
25 years' service. 

Passing to the fifth pay period as outlined in the above table it 
will be noted that a major who has completed 23 years' service will 
receive the same pay as a lieutenant colonel or a colonel who has 
completed 23 years' service. Examining the fourth pay period as 
outlined in the above table it will be noted that a captain in the 



26 READJUSTMENT OF PAY. 

Army who has completed 19 years' service will receive the same 
pay as a major or a lieutenant colonel of the same length of service. 
This same situation applies to a first lieutenant, captain, and major in 
the third pay period, and owing to a subsequent paragraph of this 
section, which authorizes an increase of 5 per cent for each three 
years of service, a first lieutenant would receive more pay under 
these conditions than a major; and a captain under an analogous 
situation in the fourth pay period would not only receive more pay 
than a major but more pay than a lieutenant colonel. When it is 
understood that the duties performed in these services in the field 
and at sea are determined in every instance by the rank and grade 
of these officers, namely, the duties of a captain are more impor- 
tant and require a higher degree of proficiency and skill in their 
performance than the duties of a first lieutenant, and the duties 
of a major are in turn more important and require a higher degree 
of proficiency and skill in their performance than the duties of a 
captain, and so forth, for each succeeding higher grade, the destruc- 
tion of morale and efficiency that the provisions of this bill threaten 
to bring about is appalling. 

Applying this scheme of pay periods to the officers in the selec- 
tion grades of the Navy it will be noted that it would totally dis- 
regard such superior qualifications in an officer as cause officers to 
be selected for promotion. Under the provisions of this bill it would 
be immaterial whether or not a commander was selected from the 
bottom of the list of commanders on account of his superior quali- 
fications and demonstrated ability for appointment to the next 
higher grade, for he would not receive any increased compensa- 
tion over what he was receiving in the grade from which promoted, 
and as already pointed out he might actually be receiving less pay 
than a lieutenant commander who in fact had more service. If 
the provisions of this bill are enacted into law, it will only be a short 
time until ability will be at a discount and length of service at a 
premium. 

A lieutenant, senior grade, in the Navy with 23 years' service (and 
there are many such) would immediately receive more pay than a 
lieutenant commander with 22 years' service, and if he were pro- 
moted to the grade of lieutenant commander he would immediately 
receive the pay of a commander after 23 years' service. 

The necessity for obtaining officer personnel from civil life is fre- 
quently very pressing; in fact situations arise making it absolutely 
unavoidable. It appears that the provisions of this section would 
completely cut off this source of officer material. For example, an 
officer appointed from civil life as a first lieutenant would receive the 
same pay as if appointed a second lieutenant, $1,500, and a major 
would receive the base pay of a captain of seven years' service, 
$2,400. But if that captain had 17 years' service he would haveta 
base pay of $3,000. While the base pay of a major appointed from 
civil life would be $2,400 he would be serving with majors receiving 
a base pay of $3,500. And when it is further considered that these 
officers appointed from civil life would not have any service upon 
which to compute pay for length of service at the rate of 5 per cent 
for each three years' service, it is noted that the gap is widened to the 
extent of $1,225. In other words, a major appointed from civil life, 



READJUSTMENT OF PAY. 27 

who has been commissioned in that grade on the theory that he is 
fully qualified to perform the duties assigned in that grade, and he is 
generally selected because his special technical qualifications render 
his services particularly desirable, would receive only $2,400 per 
annum, while an officer in the same grade with 23 years' service would 
receive $4,725 per annum. This is not submitted as an extreme case 
but as a typical case such as would be continually arising under sec- 
tion 1 of this bill. It will hardly be contended that officer personnel 
could be obtained from civil life under these conditions. 

The following table presents this matter of pay periods from a view- 
point which indicates the possible extent of increase of pay in grade 
without regard to promotion : 

Table 3. 

Grade and title: Base pay. 

General $13, 500 

Major general 8, 500 

Brigadier general 6, 500 

Colonel — 

Over 26 years' service 4, 000 

First appointment above captain 4, 000 

Appointed under section 24, act June 4, 1920 4, 000 

Less than 26 years' service 3, 500 

Lieutenant colonel — 

Over 30 years' service 4, 000 

Over 20 and less than 30 years' service 3, 500 

First appointment above captain 3, 500 

Appointment under section 24, act of June 4, 1920 3, 500 

Less than 20 years' service 3, 000 

Major — 

Over 23 years' service 3, 500 

Over 14 and less than 23 years' service 3, 000 

First appointment above second lieutenant 3, 000 

Appointed under section 24, act June 4, 1920 3, 000 

Less than 14 years' service 2, 400 

Captain — 

Over 17 years' service 3, 000 

Over 7 and less than 17 years' service 2 , 400 

First appointment above second lieutenant 2, 400 

Present rank July 1 , 1920, or earlier 2, 400 

Less than 7 years' service 2, 000 

First lieutenant — 

Over 10 years' serAdce 2, 400 

Over 3 and less than 10 years' service 2, 000 

First appointment above second lieutenant 2, 000 

Less than 3 years' service 1, 500 

Second lieutenant — 

Over 5 years' service .' 2, 000 

Less than 5 years' service 1, 500 

It is noted from an examination of this table that a lieutenant 
colonel, major, captain, or first lieutenant may find his base pay in 
any one of three pay periods, while the colonel and second lieutenant 
would have a possible variety of only two pay periods. 

Under the provisions of paragraph 9 of section 1 those officers who 
have been promoted too rapidly in time of peace, and therefore not 
deemed qualified to receive the pay of the pay period regularly assigned 
to a given officer, such as major, are advanced to the next pay period 
during the existence of war, formally recognized by Congress, but no 
officer will suffer any reduction of his pay by reason of this paragraph. 



28 



READJUSTMENT OF PAY. 



Obviously if an officer is qualified to perform the duties of a given office 
in time of war, and receive the compensation regularly prescribed 
therefor, he is qualified to perform these duties in time of peace and 
should receive the pay regularly prescribed as a proper compensation 
for the services rendered. 

Paragraph 10 of section 1 authorizes every officer below the grade 
of brigadier general to receive an increase of 5 per cent of the base pay 
of his pay period for each three years' service within certain limita- 
tions, up to 30 years. For example, no officer below the grade of 
colonel may receive a compensation composed of base pay, plus pay 
for length of service, in excess of $5,750. This limitation does not 
include a '"money allowance " of several hundred dollars for food and 
room rent, the exact amount of which depends upon the pay period 
in which the officer happens to be on a given date, and, also upon 
whether he has dependents which, under the provisions of this bill, the 
Government must help support by a special allowance. The addi- 
tions provided by this paragraph are fully demonstrated by the 
following table: 

Table 4. 



Grade or title. 



Base pay. 



Base pay 

plus 
longevity. 



General 

Major general 

Brigadier general 

Colonel: 

Over 26 years' service '. 

First appointment above captain 

Less than 26 years' service 

Lieutenant colonel: 

Over 30 years' service 

Over 20 and less than 30 years' service 

First appointment above captain 

Less than 20 years' service 

Major: 

Over 23 years' service 

Over 14 and less than 23 years' service 

First appointment above second lieutenant 

Less than 14 years' service 

Captain: 

Over 17 years' service 

Over 7 and less than 17 years' service 

First appointment above second lieutenant 

Less than 7 years' service 

First lieutenant": 

Over 10 years' service 

Over 3 and less than 10 years' service 

First appointment above second lieutenant 

Less than 3 years' service 

Second lieutenant: 

Over 5 years' service 

Less than 5 years' service 



$13, 500 
8,500 
6,500 

4,000 
4,000 
3,500 

4,000 
3,500 
3,500 
3,000 

3,500 
3,000 
3,000 
2,400 

3,000 
2,400 
2,400 
2,000 

2,400 
2,000 
2,000 
1,500 

2,000 
i; 500 



$13, 500 
8,500 
6,500 

6,000 
6,000 
4,900' 

1 5, 750 
5,075 
5, 250 
3,90a 

5, 250 
4, 050 
4,500 
2, 880 

4,500 
3, 000' 
3,600 
2, lOO' 

3,60a 
2,200 
3,000 
1, 500- 

3, 000< 

1, 575. 



1 Base pay plus longevity pay of a lieutenant colonel shall not exceed $5,750. 
(Appointments under sec. 24, act of June 4, 1920, omitted.) 

Just what the idea of additional pay for length of service counts 
for in this bill is well demonstrated by taking a few examples from 
this table. For instance, a first lieutenant with less than 3 years'^ 
service receives only $1,500, while 7 years' additional service in hi& 
grade gives him an increase of base pay amounting to $900, and a 
total increase of pay amounting to $1,200 per annum. In other 



EEADJUSTMEIlTT OF PAY. 29 

"words, a first lieutenant receives a maximum of $1,260 additional 
pay per annum for 10 years' service. A captain receives an increase 
of base pay amounting to $1,000 per annum for 10 years' service in 
his grade and a total increase of pay amounting to $1,550 per annum 
ior 10 years' service in his grade. A major receives an increase of 
base pay amounting to $1,100 per annum for 9 years' service in his 
^rade and a total increase of pay amounting to $1,845 per annum for 
9 years' service in his grade. A lieutenant colonel receives an in- 
crease of base pay amounting to $1,000 per annum for 10 years' 
service in his grade and a total increase of pay amounting to $2,100 
per annum for 10 years' service in his grade. A colonel receives an 
increase of base pay amounting to $500 per annum for 4 years' serv- 
ice in his grade and a total increase of pay amounting to $1,100 per 
annum for 4 years' service in his grade. 

The importance of this idea of additional pay for length of service 
becomes all the more apparent when the interpretation of Table 2 
is recalled, wherein it was pointed out that in many instances pro- 
motion in grade did not bring an increase of compensation, and that 
a captain in the Army who has completed 19 years' service will 
receive the same pay as a major or a lieutenant colonel of the same 
length of service and more pay than either a captain or a lieutenant 
colonel with less than 18 years' service to his credit. 

Paragraph 11 of section 1 attempts to indicate what would be 
counted in computing length of service, a substantial discrimination 
being made in favor of those now in the service as against those who 
enter the service after this bill becomes effective as a law. 

Paragraph 12 of section 1 makes the provisions of this bill apply 
equally to all persons in these services in a capacity other than as 
commissioned officer. Just who these individuals are is not disclosed. 
This paragraph also brings contract surgeons, chief warrant officers. 
Army field clerks, and field clerks, Quartermaster Corps, within the 
provisions of this bill. 

Section 2 provides that an officer on field or sea duty shall receive 
an additional 5 per cent of the base pay of his pay period, thereby 
doubling the number of pay gradations provided for in section 1. 
Attention is also invited to the fact that under the provisions of law 
now in force officers of the Navy receive a 10 per cent increase on 
their base pay for sea duty but that officers of the Army do not 
receive any additional compensation for field service. In other words, 
this section provides an increase of 5 per cent on the base pay of an 
Army officer for field service and a reduction of 5 per cent on the 
base pay of a Navy officer for sea duty. Under the further provi- 
sion of this section defining sea and field duty it is estimated that 
about five out of every six officers in the Army and the Navy will 
receive an additional 5 per cent on their base pay. The additions 
provided by this section are fully demonstrated by the following 
table . 



30 



EEADJUSTMENT OF PAY. 



Table 5. 



Grade and title. 



Base pay. 


Base plus 

5 per cent 

for field 

duty. 


$13, 500 
8,500 
6,500 


$14, 175 
8,925 
6,825 


4,000 
4,000 
3,500 


4,200 
4,200 
3,675 


4,000 
3,500 
3,500 
3,000 


4,200 
3, 675 
3,675 
3,150 


3,500 
3,000 
3,000 
2,400 


3,675 
3,150 
3, 150 
2,520 


3, 000 
2,400 
2,400 
2,000 


3, 150 
2,520 
2,520 
2,100 


2,400 
2,000 
2,000 
1,500 


2,520 
2,100 
2,100 
1,575 


2,000 
1,500 


2,100 
1,575 



Base plus 
longevity 
plus field- 
duty pay. 



General 

Major general 

Brigadier general 

Colonel: 

Over 26 years' service 

First appointment above captain 

Less than 26 years' service 

Lieutenant colonel: 

Over 30 years' service 

Over 20 and less than 30 years' service 

First appointment above captain 

Less than 20 years' service 

Major: 

Over 23 years' service 

Over 14 and less than 23 years' service 

First appointment above second lieutenaBt 

Less than 14 years' service 

Captain: 

Over 17 years' service 

Over 7 and less than 17 years' service 

First appointment above second lieutenant 

Less than 7 years' service 

First lieutenant: 

Over 10 years' service , 

Over 3 and less than 10 years' service , 

First appointment above second lieutenant 

Less than 3 years' service , 

Second lieutenant: 

Over 5 years' service 

Less than 5 years' service 



$14, 175 
8,925 
6,825 

6,200 
6,200 
5,075 

5,950 
5, 250 
5,425 
4,050 

5,425 
4,200 
4,650 
3,000 

4,650 
3,120 
3,720 
2,200 

3,720 
2,300 
3,100 

1,575 

3,100 
1,650 



(Appointments under sec. 24, act of June 4, 1920, omitted.) 

Under section 3 of this bill an effort is made to take care of officers 
of the National Guard and the reserve forces, their compensation for 
certain purposes being based upon full time for other purposes upon 
half time for other purposes upon one-third time and for still other 
purposes upon one-fourth time. This is a further example of a 
sacrifice of the principles of simplicity without securing an additional 
assurance of justice to the individuals concerned. 

Section 4 determines those who may be considered ''dependents" 
within the meaning of the other provisions of this bill. There does 
not seem to be any good reason that the term ''dependents" if 
admissible, should be limited to the mother, wife, and children under 
age of an officer. If the idea of compensation for dependents is just, 
the term should include all individuals regardless of age or relation- 
ship actually dependent upon the officer for support. Attention is 
again invited to the fact that the idea of dependents should not have 
any place in a pay bill establishing a permanent readjustment of the 
pay and allowance of the commissioned and enlisted personnel of the 
Army, Navy, and Marine Corps, and the other services for reasons 
hereinbefore set forth. 

Section 5 of this bill provides that each commissioned officer below 
the grade of brigadier general or its equivalent in the other services 
shall be granted at all times a "money allowance" of 60 cents per day, 
i. e., $18.12 per month, for food. If, as hereinbefore pointed out, the 
commissioned personnel of these services are receiving a compensa- 
tion commensurate with the services rendered, and it has not been 
shown that they are not, then this provision gives each commissioned 
officer 60 cents a day to which he is obviously not entitled. If, on the 
other hand, it can be shown that the character of his services are such 
at all times as to entitle him to this additional 60 cents per day, then 



EE ADJUSTMENT OF PAY. 



31 



it should be included in his base pay and not provided for in the way 
of a gratuity. 

This section further provides that when an officer is serving in the 
second, third, or sixth pay period he is made a present of $1.20 per 
day, i. e., 136.50 per month, v^^hile if he is serving in the fourth or 
fifth pay period he is presented with $1.80 per day, i. e., $54.75 per 
month. These additional gifts are made not because of services 
rendered, but because the officer has one or more dependents. A 
feeble attempt has been made by friends of this bill to argue that 
this money allowance is in no wise based upon dependents. It 
states in so many words in the last proviso of this section, however, 
that if an officer does not have any ''dependents" he shall receive 
only 60 cents per day. This may not appear to be much in the way 
of additional compensation, but when examined in the light of cold 
facts the total cost per year for each officer ranges from $219 for a 
second lieutenant to $657 for a captain or a major. The following 
table shows the gift this section makes to the officers of each grade 
in the services provided for in this bill in the way of a ''money 

allowance ' ' for food : 

Table 6. 



Grade and title. 



General 

Major general 

Brigadier general 

Colonel: 

Over 26 years' service 

First appointment above captain 

Less tlian 26 j'ears' service 

Lieutenant colonel: 

Over 30 years' service 

Over 20 and less than 30 years' service 

First appointment above" captain 

Less than 20 years' service 

Major: 

Over 23 years' service 

Over 14 and less than 23 years' service 

First appointment above second lieutenant 

Less thaii*14 years' service 

Captain: 

Over 17 years' service 

Over 7 and less than 17 years' service 

First appointment above second lieutenant 

Less than 7 years' service 

First Uentenant: 

Over 3 years ' service 

Over 3 and less than 10 years' service 

First appointment above second lieutenant 

Less than 3 years' service 

Second lieutenant: 

Over 5 years' service 

Less than 5 vears' service 



Food allowance. 


Base pay 
plus lon- 


Depend- 
ents. 


No depend- 
ents. 


gevity, field 

duty, and 

rations. 


(1) 
$438 
438 


0) 
$219 
219 




$9, 363 
7,263 


438 
438 
657 


219 
219 
219 


6,638 
6,638 
5,732 


438 
657 
657 
657 


219 
219 
219 
219 


6,388 
5,907 
6,082 

4,707 


657 
657 
657 
438 


219 
219 
219 
219 


6,082 
4,857 
5,307 
3,438 


657 
438 
438 
438 


219 
219 
219 
219 


5,307 
3,558 
4,158 
2,638 


138 
438 
!3S 
219 


219 
219 
219 
219 


4,158 
2,738 
3, 538 
1,794 


438 
219 


219 
219 


3,538 
1,869 



1 Allowances fixed bv President. ^ , ■ ^ 

Appoinlments under section 24, act June 4, 1920, omitted, since they computed same as first appoint- 
ment above captain and second lieutenant in Army. 

The idea of a commuted ration for officers was in force in the Navy 
under section 1578 of the Revised Statutes until repealed as imprac- 
ticable by the act of March 3, 1899. It is recommended that it should 
have no place in legislation providing for a permanent readjustment 
of the pay and allowances of these services. The provision in this 
section giving a krger allowance for subsistence to officers in the 
fourth and fifth pay periods is abviously a device for increasing pay. 
There can be no other reason for assuming that the family of a captain 



32 



READJUSTMENT OF PAY. 



would be expected to eat more than the family of a first lieutenant, or 
the family of a lieutenant colonel would be expected to eat more than 
the family of a colonel. 

Section 6 provides that each commissioned officer below the grade 
of brigadier general or its equivalent in the other services, not fur- 
nished with public quarters, shall be allowed a further ''money allow- 
ance" in addition to that provided for in section 5, for room rent on 
the basis of $20 per month for each room. The amount of money 
given to each officer under this head ranges from $40 per month for 
an officer in the first pay period (second or first lieutenant) to $120 
per month for an officer in the sixth pay period (lieutenant colonel or 
colonel). If, however, an officer has no dependents the amount of 
the gift ranges from $40 per month to $80 per month, depending upon 
the pay period upon which his pay is based. If this additional com- 
pensation is earned then obviously it should be made a part of his 
base pay, and when occupying public quarters he should be charged 
a fair rental therefor in the same manner as the Government clerks 
occupying governmental dormitories in Washington pay a fair rental 
for their quarters instead of receiving food and room rent free and 
the Government making a donation of an equivalent sum for food 
and room rent to each such clerk not living in Government quarters. 

The amount of this donation ranges from $480 per year in the case 
of a second lieutenant to $1,440 per year in the case of an officer in 
the grade of major or above. The following table shows the gift this 
section makes to the officers of each grade in the services provided 
for in this bill in the way of a "money allowance" for room rent: 

Table 7. 



Grade and title. 



Room-rent allowance. 



Depend- 
ents. 



No de- 
pendents. 



Base pay 

plus 
additions, 
including 

field 



General .' 

Major general 

Brigadier general 

Colonel: 

Over 26 years' service 

First appointment above captain 

Less than 26 years' service 

Lieutenant colonel: 

Over 30 years' service 

Over 20 and less than 30 years' service 

First appointment above captain 

Less than 20 years' service 

Major: 

Over 23 years' service , 

Over 14 and less than 23 years' service 

First appointment above" second lieutenant 

Less than 14 years' service 

Captain: 

Over 17 years' service 

Over 7 and less than 17 years' service 

First appointment above second Ueutenant 

Less than 7 years' service 

First lieutenant: 

Over 10 years' service 

Over 3 and less than 10 years' service , 

First appointment above second lieutenant 

Less than 3 years' service , 

Second heutenant: 

Over 5 years' service , 

Less than 5 years' service 



(I) 
2 $1,440 
2 1,440 

2 1,440 

2 1,440 

1,440 

2 1,440 
1,440 

2 1,440 
1,200 

2 1,440 

1,220 

1,220 

960 

1,220 



960 
720 
720 



480 
480 



(1) 



960 
960 
960 



960 
960 
720 

960 
720 
720 
720 

720 
720 
720 
480 

720 
480 
480 
480 

480 
480 



$10,225 
8,325 

7,400 
7,400 

7,172 

7,400 
7,347 
7,375 
5,907 

7,375 
6,057 
6,507 
4,398 

6,507 
4,518 
5,118 
3,358 

5,118 
3,458 
4,258 
2,274 

4,018 
2,349 



1 Allowances fixed by President. 

2 Base pay plus pay for length of service and allowances for food and rent shall not exceed $7,200 a year, 
$8,000, and $9,800 for the grades of colonel and below; brigadier general, and major general, respectively. 



EEADJUSTMENT OF PAY. 33 

It is further noted that this section authorizes this "money allow- 
ance" for each officer, except those without dependents, when he is 
serving in the field or at sea as well as when serving ashore, although 
quarters in kind are also furnished him while serving in the field. 
If as hereinbefore pointed out these paternal ideas of additional com- 
pensation for food and rent really have any reason or justice in them, 
they should apply equally to every officer and enlisted man in these 
services, and to all other services under the Government, it being just 
as much an outright gift in one case as another. It should also be 
made commensurate in ever^y case with the needs of the dependents, 
including clothing, hospital bills, general education, and other things 
generally recognized as necessary. 

Section 7 restricts the total amount of base pay plus pay for length 
of service and allowances for subsistence and rental of quarters to 
$7,200 per year for any officer below the grade of brigadier general. 
This restriction in fact applies to colonels, lieutenant colonels, and 
majors with 30 years' service, but in no case more than $678, and 
that in the case of colonel. 

So much of section 8 as fixes the base pay of a brigadier general and 
a major general commends itself on. account of its simplicity. The 
other provisions of this section granting a food and room rent allow- 
ance are not recommended for reasons hereinbefore set forth. The 
restriction to $8,000 and $9,000, respectively, for brigadier and 
major general constitute an actual but small limitation for the 
majority of officers in these grades. However, if they are entitled to 
this extra compensation for food and room rent the limitation cutting 
their allowances below the amount determined upon for officers in the 
grades below brigadier general is unjust. 

If, however, the nature of their services are such as to warrant this 
additional compensation which is provided for board and lodging, it 
should be incorporated into their base pay; if not, it should be omitted 
from this bill or any other bill providing for a permanent readjust- 
ment of pay. It is noted, however, that this section fixes the base 
pay of brigadier generals and corresponding grades in other services 
at $6,500 per annum instead of $6,000 as now authorized by law, 
with a maximum limit of $8,000 for pay and allowances. Pay and 
allowances of a brigadier general in Washington now totals $7,452 
per annum, so that the new pay proposed represents an increase of 
approximately $548. 

This section further fixes the base pay of major generals and 
corresponding grades in other services at $8,500 per annum instead 
of $8,000, as now authorized by law, with a maximum limit of $9,800 
for pay and allowances. The pay and allowances of a major general 
in Washington now totals $9,664 per annum, so that the new pay 
proposed represents an increase in this grade of about $136 per 
annum. 

These increases have been incorporated in this bill for the purpose 
of obtaining a proper relationship between these grades and the lower 
grades. Whether or not they are warranted by the character of the 
services rendered is not shown. 

H. Rept. 753, 67-2 3 



34 



READJUSTMENT OF PAY, 



The following table explains the relative value of the total pay 
and allowances under the act of May 13, 1908, May 18, 1920, which 
expires June 30, 1922, and the provisions of the present bill: 



Table 8. 



Grade and title. 



Total pay and allowances. 



May 13, 
190S. 



^rav 18, 
1920. 



i'resent 
bill. 



General 

Major general 

Brigadier general 

Colonel: 

Over 26 years' service 

First appointment above captain 

Less than 26 years service 

Lieutenant colonel: 

Over 30 years' service 

Over 20 and less than 30 years' service 

First appointment above captain 

Less than 20 years' service 

Major: 

Over 23 years' service 

Over 14 and less than 23 years' service 

First appointment above second lieutenant 

Less than 14 years' service 

Captain: 

Over 17 years' service 

Over 7 and less than 17 years' service 

First appointment above second lieutenant 

Less than 7 years' ser\'ice 

First lieutenant: 

Over 10 years' serxice 

Over 3 and less than 10 years' serxnce 

First appointment above second lieutenant 

Less than 3 years' service 

Second lieutenant: 

Over 5 years' serxace . .• 

Less than 5 years' ser'wee 



$13, 500 
10,505 
8,132 

6,859 

(2) 
5,759 

6,131 
6,131 

5,031 

5,400 
5, 400 
(2) 
4, 300 

4, 517 
4,253 

3,461 

3,718 
3,278 

2,838 

3,067 
2,319 



1 S13, 500 
10,505 
8,132 

7,459 

6,359 

6, 731 
6,731 

5,631 

6,240 
6,240 

5,140 

5,237 
4,973 
(2) 
4,181 

4,318 
3,878 

3,438 

3,487 
2,739 



1 $13, 500 
10, 225 
8,325 

7,400 
7,400 
7,172 

7,400 
7,347 
7,375 
5,907 

7,375 
6,057 
6,507 
4,398 

6,507 
4,518 
5,118 
3,358 

5,118 
3,458 
4,258 
2,274 

4,018 
2,349 



1 Allowances fixed by President. 

2 Nothing in present pay tables to compare with provision in bill for first appointment above grade of 
second lieutenant and captain or with first appointment under sec. 24, act of June 4, 1920. 

A study of this table shows that the total pay and allowances per 
annum under the provisions of this bill exceeds the total pay and 
allowances per annum under the act of May 13, 1908, for second lieu- 
tenant by $951, for first lieutenant by $1,400, for captain by $2,010, for 
major by $1,975, for lieutenant colonel by $1,269, for colonel by $641, 
for brigadier general by $193, but a major general would receive $280 
less. This table further shows that the total pay and allowances per 
annum under the provisions of this bill exceeds the total pay and 
allowances per annum under the act of May 18, 1920, which expires 
June 30, 1922, and is recognized as emergency legislation, for second 
lieutenant by $531, for first lieutenant by $800, for captain by $1,920, 
for major by $1,135, for lieutenant colonel by $669, for colonel $41, 
for brigadier general by $193, but a major general would receive 
$280 less. 

It is contended that the provisions of this bill actually work a 
saving to the Government in the pay of the officers of the lower 
grades. That would probably be true in the case of officers in the 
grades of second and first lieutenant. It is recommended, however, 
that inasmuch as the officers in these grades receive a much lower 
pay under the laws now in force than the officers in the higher grades, 



KEADJUSTMEISTT OF PAY. 



35 



a reduction of their pay and the increase of the pay of the officers 
in the higher grades is very poor economy, and one that should not be 
recommended for incorporation in a bill permanently readjusting the 
pay and allowances of the commissioned and enlisted personnel of 
these services. It is obvious, however, that the pay of the officers 
in the higher grades below brigadier general are materially increased 
over the rates provided in either the act of May 13, 1908, or the tem- 
porary relief act of May 18, 1920; and it is suggested that no justifi- 
cation for this increase has been shown which in one instance amounts 
to $2,010 per annum for an officer in the grade of captain over the 
rate prescribed by the act of May 13, 1908, while it amounts to $1,290 
per annum for that officer over the rate provided in the emergency 
act of May 18, 1920. 

Section 9 provided for a decided increase in pay for the higher 
enlisted grades in the Army without any evidence having been 
presented showing that it is warranted or justified. On the whole, 
it is estimated, however, that this section will reduce the pay of the 
enlisted men of the Army for the next fiscal year $7,485,729. It is 
also estimated that it will ultimately reduce the pay of the enlisted 
men of the Army $12,485,729. This section further provides for 
increased pay for enlisted men on the retired list. No convincing 
testimony has been produced showing why the retired pay of enlisted 
men, who retired prior to this time, should be increased. They are 
not now performing any services, and inasmuch as retired pay is a 
part of the pay received for the duties heretofore performed while 
on the active list, there does not appear to be any good reason for 
the increase. 

Proposed annual pay of enlisted men of the Army and Marine Corps. 



Grade. 





Length of service in grade. 




1 to4 


5 to 8 


9 to 12 


13 to 16 


17 to 20 


Over 20 


years. 


years. 


years. 


years. 


years. 


years. 


%i, 512. 00 


.«1, 787. 60 


,1l;i,863.20 


11,938.80 


S2, 014. 40 


S2, 090. 00 


1,008.00 


1, 258. 40 


1, 308. 80 


1, 359. 20 


1,409.60 


1, 460. 00 


864. 00 


1,107.20 


1, 150. 40 


1,193.60 


1, 236. 80 


1, 280. 00 


648. 00 


780.40 


812. 80 


S45. 20 


877. 60 


910. 00 


504. 00 


629. 20 


654. 40 


679. 60 


701. 80 


730. 00 


360. 00 


478. 00 


496. 00 


514.00 


532. 00 


550. 00 


720. 00 


838. 00 


856. 00 


874. 00 


892. 00 


910. 00 


660. 00 


778. 00 


796. 00 


814.00 


832. 00 


850. 00 


600. 00 


718. 00 


736. 00 


754. 00 


772. 00 


790. 00 


540. 00 


658. 00 


676. 00 


694. 00 


712. 00 


730. 00 


432. 00 


550. 00 


568. 00 


586. 00 


604. 00 


622. 00 


396. 00 


514.00 


532. 00 


550. 00 


568. 00 


586. 00 


252. 00 


364. 60 


377. 20 


389. 80 


402. 40 


415. 00 


612.00 


724. 00 


7.37. 20 


7 19. 80 


762. 40 


775. 00 


552. 00 


664. 60 


677. 20 


689. 80 


702. 40 


715.00 


492. 00 


604. 60 


617. 20 


629. 80 


642. 40 


".55. 00 


432. 00 


544. 60 


557. 20 


569. 80 


582. 40 


595. 00 


324. 00 


436. 60 


549. 20 


461. 80 


474. 40 


487. 00 


288. 00 


400. 60 


413. 20 


425. SO 


438. 40 


451. 00 



Maxi- 
mum pay 
in Wash.- 
iugton. 
D. C, 
with 20 
years. 



First grade 

Second grade 

Third grade 

Fourth grade 

Fifth grade 

Sixth grade 

Sixth grade with rating as 
specialist: 

First class ($30) 

Second class ($25 ) 

Third class ($20) 

Fourth cla.ss ($15) 

Fifth class ($6) 

Sixth class ($i) 

Seventh grade 

Seventh grade with rating as 
SDecialist: 
'First class ($30) 

Second class ($25) 

Third class ($20) 

Fourth class ($15) 

Fifth class ($8) 

Sixth class ($3) . .• 



$3, 550. 00 
2, 920. 00 
2, 740. 00 
2, 370. 00 
2, 190. 00 
2,010.00 



2, 370. 00 
2, 310. 00 
2, 250. 00 
2,190.00 
2,082.00 
2,046.00 
1,875.00 



2,235.00 
2,475.00 
2,115.00 
2,055.00 
1,947.00 
1,911.00 



In addition to the above, enlisted men receive allowances in kind for food, room rent, heat, and light, the 
maximum commuted value of which is $1,460 per annum for Washington, D. C. Also a maximum of $5 
per month for special qualifications in the use of arni or arms which they may be required to use. 

In addition the enUsted man recei\'es transportation for baggage, household effects, and family from 
one station to another. 



36 



EEADJUSTMENT OF PAY. 



Section 10 makes a decided distinction between warrant officers of 
the Navy serving at sea and those serving ashore. The reason for 
this increase for service at sea has not been fully shown. The pro- 
visions establishing a definite percentage increase as an enlistment 
allowance commends itself over the present pay arrangement for 
enlisted men in the Navy." On the whole, it is estimated, however, 
that this section will reduce the paiy of the enlisted men of the Navy 
for the next fiscal year, $7,550,239; it is also estimated that it will 
ultimately reduce the pay of the enlisted men of the Navy $10,457,475. 

The term ''honorably discharged" not being subject to the same 
interpretation in the Army and Navy at this time, its meaning should 
be clearly defined in this or other legislation in which it is applied 
to both services. The objection to increasing the retired pay of 
enlisted men of the Army who have heretofore retired also applies 
to the provision of this section providing for an increase of the 
retired pay of the enlisted men of the Navy. 

Proposed annual pay of enlisted wen of Navy and Coast Guard. 



Length of service in grade. 


1 to4 
years. 


5 to 8 
years. 


9 to 12 
years. 


13 to 16 
years. 


Over 16 

years. 


Maximmn 

pay in 
Washing- 
ton, D. C, 
over 16 
years. 


First grade 


SI, 512. 00 
1,008.00 
864. 00 
720. 00 
648. 00 
432. 00 
252. 00 
1, 188. 00 


SI, 863. 20 

1,308.80 

1, 1.50. 40 

892. 00 

812. 80 

575. 20 

377. 20 

1, 506. 80 


$1,938.80 

1,359.20 

1, 193. 60 

928. 00 

845.20 

596. 80 

389. 80 

1, 566. 20 


$2, 014. 40 

1,409.60 

1, 236. 80 

964. 00 

877. 60 

618. 40 

402.40 

1,625.60 


$2,090.00 

1,460.00 

1,280.00 

1, 000. 00 

910. 00 

640. 00 

415. 00 

1, 685. 00 


$3, 550. 00 




2, 920. 00 


Third grade. . . . 


2, 740. 00 




2, 460. 00 


Fifth grade 


2, 370. 00 




2, 100. 00 


Seventh grade 


1, 875. 00 


Acting C. P. 


3, 145. 00 







In addition to the above, enlisted men receive allowances in kind for food, room rent, heat, and light, 
themaximimicommuted value of which is $4per diem, or $1,460 a year. Also amaximnm of $5per month; 
i. e., $60 per year, for special qualifications in the use of arm or arms which they may be required to use. 

In addition to all this, enlisted men receive transportation for baggage, household elTects, and family 
from one station to another. 

Navy enlisted men receive the same pay after 16 years' service that Army enlisted men receive after 20 
years' service. 

It is generally admitted that the provisions of this bill relating to 
the enlisted personnel of these services show a slight reduction for 
the pay of the enlisted men of the Navy over the rate provided by 
the temporary relief act of May 18, 1920, but that it provides an 
increase in the higher rates for the enlisted men of the Army. 

Section 11 gives a ''money allowance' ' for food and room rent 
to warrant officers equal to that given to commissioned officers in 
the first pay period. It is recommended that if this is a gift it should 
be omitted; if it is compensation for services rendered it should be 
included in the base pay. 

In section 12 it is not quite clear whether or not the 8 cents per 
mile for travel would apply to the Army and Navy when traveling 
over "land-grant" railroads. This would make a difference of 
5 cents a mile in many cases, and should therefore be specified. The 
provision for actual expenses in the case of repeated travel is an 
increase and not a decrease in compensation in favor of the one 
performing the travel. 



EEADJUSTMENT OF PAY. 37 

Section 13, providing for the base pay of mirses, commends itself. 
The provision for food and room-rent allowances is as objectionable 
in this case as in any other. 

Section 14 proposes a readjustment of pay for the officers of the 
National Guard receiving Federal pay and officers of the reserve forces 
and provides that while on active duty they shall receive the allow- 
ances prescribed in sections 5 and 6 for officers of the regular services. 
This is objected to on the grounds submitted in support of objections 
raised in the case of regular officers receiving these gratuities. 

Section 15 proposes the repeal of existing laws authorizing an in- 
crease of pay for foreign service and for commutation, heat, and 
light. This repeal is strongly recommended. A failure to provide 
in this bill for an increase of pay for foreign service can be accepted 
as an admission that it is unnecessary; the same applies to commu- 
tation for heat and light. If the nature of the service rendered justi- 
fies an increase of pay for commutation, heat, and light, then these 
increases should be incorporated in the base pay for reasons herein- 
before stated. 

Section 16 proposes that nothing contained in this bill shall reduce 
the pay and allowances of any commissioned officer below the pay 
and allowances provided by the act of May 13, 1908, and thereby 
insures the personnel of these services against the possibility of an 
unfavorable construction of one or more of the innumerable contin- 
gencies which are the uncertain effect of the many provisions of this 
bill. 

Section 17 proposes that retired officers shall after July 1, 1922, 
have their retired pay based on the pay prescribed in this bill; that 
no retired officer shall suffer a reduction in his retired pay on account 
of this act; and that the increases of pay received due to the perma- 
nent promotions obtained on the retired list by virtue of the act of 
July 1, 1918, shall be retained. It is not deemed necessary to reiterate 
again the reasons why officers retired prior to the enactment of this 
bill into law should not receive an increase of pay. 

Section 18 provides certain additional compensation for enlisted 
men showing special qualifications in the use of the arm or arms they 
are required to use. The language is not sufficiently specific to 
accomphsh the purpose desired, i. e., for determining how long these 
gratuities shall continue in force. 

Section 21 preserves the allowances in kind for rations, quarters, 
heat, and light for enlisted men; for quarters, heat, and light for 
officers; also allowances for private mounts for officers, and transpor- 
tation in kind for officers and enlisted men; transportation and pack- 
ing allowances for baggage and household effects for officers and 
enlisted men; allowances to officers for aides; and to enlisted men for 
a variety of activities, all of which are provided for by a number of 
additional laws enacted for each service separately or collectively. 

Section 32 provides that only the laws and parts of laws which 
are inconsistent with or in conffict with the provisions of this bill 
shall be repealed and that all others remain in full force and effect. 
As it stands this section serves no useful purpose. All laws or parts 
of laws inconsistent with or in conflict with the provisions of this 
bill would be repealed by implication, and those not in conffict there- 
with would remain. In other words, it becomes a matter for the 



38 READJUSTMENT OF PAY. 

courts to decide whether a law or part of a law is in conflict with 
some provisions of this bill to the extent that the prior law is thereby- 
repealed. 

By far the most important consideration relative to this section 
is that instead of this bill being submitted as a complete scheme 
embodying all the laws relative to the pay and allowances of the 
connnissioned and enlisted personnel of the services therein pro- 
vided for, it would become merely another addition to the large body 
of laws now in force regulating the pay of these various services 
separately and collectively, and an officer or an enlisted man would 
be able to take advantage of all the provisions of law, not ultimately 
declared by the courts as in conflict with the provisions of this 
bill wherever it was to his advantage to do so. If this bill is in 
fact submitted as a scheme for the permanent readjustment of the 
pay of these services, it should be made complete and all prior laws 
bearing upon the subject should be specifically repealed and not 
merely left adrift. 

By way of recapitulation it may be stated that it is recommended 
that this bill be not enacted into law for the following reasons: 

1. It is based upon a situation recognized and admitted as a 
condition of abnormal retail-price inflation. 

2. The country at large is passing through a period of retrench- 
ment and the provisions of this bill are at variance therewith. 

3. The provisions of this bill are contrary to the Government's 
policy of retrenchment and economy manifested by the recent dis- 
charge for economic reasons of a large number of individuals in its 
employment. 

4. It attempts to perpetuate in the interest of the commissioned 
personnel the provisions of the emergency relief act of May 18, 
1920, which would otherwise terminate June 30, 1922. 

5. The reorganization acts since 1916 have already provided a 
substantial increase of pay for a very large majority of the officers 
in these services by way^ of promotion. 

6. The provisions of this bill are not founded upon the principles 
of adequate compensation for the services rendered, but upon the 
ideas of length of service, gifts for dependents, and other bonuses 
which have no connection with an adequate pay for the duties to be 
performed, but are in fact mere gratuities on the part of the 
Government. 

7. No consideration is given to the "office" or ''grade" to which 
an officer is now appointed under the Constitution by the President, 
by and with the advice and consent of the Senate, as a recognition of 
special worth and exceptional qualifications and as an indication of 
the services to be rendered. Officers of a higher grade, under the 
provisions of this bill, would in many instances be receiving the same 
pay as an officer two grades below him, although the officers in the 
higher grade would be in fact performing the more exacting duties 
and bearing the responsibilities attached to the higher grade. 

8. Length of service not only provides a 5 per cent increase for 
each three years of service, up to 50 per cent of increase, under the 
provisions of this bill, but in most cases after 10 years' service in a 
grade an officer is provided a new and substantially higher base pay 



EEADJUSTMENT OF PAY. 39 

upon which to compute the 5 per cent increase for each three years' 
service from the beginning of the service which may be counted for 
this purpose. 

9. Pay periods are introduced as a new basis of computation, but 
bear Uttle if any relation to the grades now provided by law. Pro- 
motion from one pay period to another is made by virtue of length 
of service and without any reference to a showing of an increased 
efficiency. 

10. The provision of this bill renders promotion in grade meaning- 
less and advancement obtained through demonstrated ability without 
additional reward. 

11. It is not a complete permanent readjustment of the pay and 
allowances of these services, but merely another law added to the 
mess of laws now in force regulating pay. 

Milton Keaus. 



40 



KEADJUSTMENT OF PAY. 



ft 



Hi 

<! 

!2; 33 



piH 



ft 5 






ft CO 



m bo 



.S o 

H >^ 
ft 
ft 









■* 


rH 


Oi C3> 05 -^ 


Oi 


OSTt* Tt< OS 


■#0 


OS 


OS OS 




t>> 


.ti 3 » ci tj 




SS 


coco COCJ 


IN 


^0 OOG 


§" 


s_ 


2§S 


ft 
o 


^^-^as 




o'oo 


tCt-T tCto 


l~^ 


co'cd" o'TtJ" 


COlO 


•o 


lOco" 








U5>0 


00 0(M 





I>.iO 10 1^ 


>nt~ 




r-oo 






C<1(N 


00 1^ 





■^t^ i>o 


t~iO 




00s 




<MCO 


Tl<^ -airt 


■* 


coco COOl 


coo 


>o 


■oco 


e 




o"oo 

9^ 


t-"t-^ t^-t^ 


l> 


i>'t^ t-Tio 


tCto 


to 


tO-T)? 




2 


3 , 


10 10 10 


00 »o 





iC 10 »c 







00 


g > 


t-<M<M 


00 ot^ 


t= 


ir^r^ b- lO 


t~u: 




>oc^ 


'3 


SO-* CO 


(N C^l c^ ^ 
















9^ 














E3S- 






















OOl 


0^ 02 C3 


a> 


Tt^ Oi Oi OS 


OS OS 


OS 


OS OS 






t^t^ 


t~t^ l^t~ 




10 CM CM :rO 


g§ 


CO 


co^ 


^s^-g-d 


-i«s 


^_^toco 


rt-H ,-( 


a 


CM-^ COCO 


^ 


Ti<QO 


p.> £0 

gaa-d 


^^S3 




tCtC i^Tco 


to' 


<:o'<^ ZO^ 


ccT-^ 


>o 


irTco 






80 


00 ot~ 





CM OI> 


ss 




t^ 00 


-C 4J , 13 K 


fM O) 





t~>-o 10 


lO 


■ot^ 


C3 C fl 




,_^00O 


WCq (M 0> 


cs 


^CM CM t- 


MOS 


CO 


cool 


M °2c3 


C^oTod 


tC^T tCco 


t^ 


t^'r-*" t^'io 


t-Tio 


CO 


to"r)< 








C^Ol 


03 C^ Oi CT 


a> 


OS OS OS 


OSO 


a 


OSO 


•as 

"H CO 


£S^ 


(N<M im5 


S 


CMCM CM ?; 


OIC^ 


S 


SS 




0000 


00 00 00 00 


00 


i>r^ r-t^ 


^^^- 


t^ 


t^OO 


Pi2 


.C , -rt OT 




CO CO CO c^ 




to »o 10 10 


10 m 


>o 


■000 


ti ® fl " 




^ 


CO CD CD CO 


to to 


CO 


tOTf 











00 00 




00 00 




C5 


00 




.f^ -u 1 ■« m 


CDO 


oS co-to 




CDCD COCM 




cs 






S O"^ 3 S 


£^°' 


05 OS Oi 05 


=. 


OS OS CSi!> 


Ost-. 


t^ 


i>r- 


■B^-i^ 


^1 




S 


§S 58 


%B 


g 


ss 




^v^"* 


''J' 


Tf(^ ^C< 


■^ CM 








^^«© 


^-^- r^-^ 


^ -I 


- ^-W ^-^ 


- .-r^ 


- -<■ 


-^ 






E- ui 


8S3 


00 
00 













g 


1 






>g^ 


*c »o ir: 


00 


t- 




(M cq 


IN 


u: 




























0"^ 


CO 000 


CD to to 


10 




>o 10 


10 


lO' 


■* 




. 


80S 






"OiO to 




















t^tr^ C^ 


t^ 


\r. 


lO 






li 








00 







CO 






















COC30CD 


100 »c 




lOio in 


10 


•<^ 


■* 






s>> 




















e© 
















r^ . 


888 


00 00 




00 












CM M 






CD 













^ 


lOiOm 






Oi Ol Oi 




c< 








^ 03 






















CO 00 to 


lOiO 10-* 




■*^ Tl( 


-* 


-* 


■* 






»o >. 




















<N "^ 


«© 
















"^ . 


III 




o»o 




ic 10 10 


uo C 











CM W 




OCVl 




(N C^ Ol 


<N »r 










H 






Tj< Tj(|> 




l^t^ t^ 


t-C 












+i 03 






















cooo«> 




10 40 -^ 




M* -^ Tj< 


^Tf 


tP 


^ 






§?^ 








































CM en 


SSE 




oc 
IC 




00 OC 

lOiO IOC 






s 


s 






°s 






(M (M ir 




lOio loa 








OS 




























cooo» 




>o 10 't 




■*"■>!<' -^-co 




o- 


CO 


CO 




^ 


2 >> 


^ 




















00 . 


III 




8 SS 






!2 ^9 




"? 


g 


s 




p. 


Si 






oc 






co cot^ 




I> 


t^ 


t- 




























OJ 


*^ § 


CO 00 to 




lO 10 Tt 






10 -«Qi- 




C*" 


CO 


co 






2 >> 


55 






















IC . 


8S8 




i ii 






8 OC 






5 


So 






5 S 












































-w § 


CO 00 to 




-rfl -fj< Tt 






■* -fV 




Cf 




CO(N 




2 >> 


s 






















o> . 


SSE 




S SS 






10 ICC 






s 


ss 




■*- d) 


10 lO w: 




to toe 






0-* 






■* 


Tt<t>- 




co-ooto" 




- 




V TtTc- 


^ 




CO 




■* -*■* 


CO CM 




2 ^ 


e© 






















05 M 


S88 




8 8? 






OC 
lO »o c 






s 


11 




o| 






■* -^oc 






00 00c 




































CO Xto 




Ti< TjlC^ 






CO coc^ 






CO 


COCM 




t- >> 


5© 






















CD CO 


III 




on- 

ot^ 






m >oc 






1 


ss 




o| 






O) (MtC 






CD CD^ 








■-I lO 




























coootc 




■^ rj< o- 






CO eoc 






CO 


coco 




^ >, 


s 






















CO »; 


SSS 


88 Si 


= 


00 oc 
00 oc 


SE 


g 


8E 




^ 


10 »o ur 


00 OU- 


c 


iraira 10c 


IOC 


C 


0-* 




co'oeTtc 


"^ * -^^h""^ tjTc^ 


^ 


CO CO CO O" 


" co'c 


CO 


oo"c<r 




1 -g. 


s 
























' S^' 






m 


.S ^"^ 








x) 


-s 
















I'SlM 








03 <N 






y 


s 


o3 






















^ 





























: ft- 
ill 


a 
c 




t» 
>> 



CO 


ftrH 






I 





















■ t» 


'> 






> 






h. 


> 



















dog 


t. 


c 


a 

03 


s 
5^ 







cS 


1 
















sg-Ss^ 




m 


fi,2o t 


%\ 




t-4 


03 












-:sg2? 







S B OS a 
R 3-1 != 




1 


1§5 








"k 


■5 


•• « M ftCi S 

"3 !>.t; fto3 a 


1| 

8> 


i 


ft-S B - 


?4s 


|i 






_ 




g 1= 


CB fe M fto X 
> S.b ftc3 S 


CO '^ 


ftc 

c3->; 


ft>5i 






Q 


3? 


(S 


og = 
"o 




|i<<1 




1^ 

3 





(i<<1 




fee 

'c? 


c 


>S 


<1 


H- 





READJUSTMENT OF PAY. 



41 



"Oio lO >oo5 lOCi oar-* oi^ 







to 00 


tocn 


c<fc<r 


co~c<r 


r-oo 

to"-*" 


00 

o 


OOM 

oco 

lOCo" 


00 00 


00 TtH 

nTccT 


OOCTi 

I— 1 CO 

0-* 


11 


§ 


(MO 


II 


OiO 


o>o 
oi> 






ii 


03 03 
lOOO 


03 0S 
en Oi 
to—I 


CO(N 

co-c^T 


CO CO 




02IM 


00 00 
OiCO 
TtTOT"" 




00-* 
co"<N~ 


05 01 




05 05 
(M<M 


0)(M 


IM(M 


05 01 
C<1(M 


§i 


- 


00 00 


00 oo 


00 03 
tHIM 


00 Ol 
Tt<(M 




s 

t^ 








^^ 


8§ 

05 


s 

CD 






-^ 


OO 



coco. CO CO 



(M (N (N 



CO O CO 



5 s 



(N (N N 



oo OO OO OO 



OO O O 
O O OO 






r- cs p,s 
■-I t- cS + 

.. M fc^ 4J " 

rt o a> m 

■-H > .b 
ft 



•T3 






— ' ^.-ICO (3^^ 
© © a) r/i (13 






, <S i 



•o 



^ ?^ fll ^ .^ -.^ ►^ t- — < i?3 »T-( I 



o 



LIBRARY OF CONGRESS 




011 798 042 n 



